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A JOURNEY TO SOUTH AMERIC 



1 





Copyright N°. 



COPYRIGHT DEPOSIT; 



Carnegie Endowment for International Peace 

DIVISION OF INTERCOURSE AND EDUCATION 

Publication No. 7 



FOR BETTER RELATIONS WITH OUR 
LATIN AMERICAN NEIGHBORS 

A JOURNEY TO SOUTH AMERICA 



BY 

ROBERT BACON 



WASHINGTON, D. C. 
1915 



- 






Copyright. 1915. by the 

Caknegib Endowment foe International Peace. 

Washington. D. C. 



r 

OCT dl 1315 







The Evening Post Job Printing Office. Inc., 156 Fulton St., N. T. 



C2CI.A414283 



Preface 

No small part of the work of the Division of Intercourse and Education of 
the Carnegie Endowment for International Peace is done through the medium 
of international visits by representative men. Experience has already confirmed 
the reasonable assumption that such visits are useful, and in high degree helpful, 
in building up a spirit of international friendship and in developing international 
understanding. A careful reading of Mr. Robert Bacon's Report of the details 
of his trip to South America in the summer and autumn of 19 13 will show 
precisely how such visits as his contribute to the peace and good order of the 
world. National ideals and national policies are carefully and sympathetically 
explained, not only to leading personalities in the countries visited, but also to 
large and representative audiences of teachers, merchants and men of affairs. 
The newspaper press is almost uniformly interested and helpful on occasions 
of this kind, and the visitor of distinction and of public service at home is made 
cordially and warmly welcome. 

It is in high degree important to multiply such visits on the part of representa- 
tive men in the various American republics. The barrier of language will be 
broken down, or surmounted, as a knowledge of English becomes more wide- 
spread in the South American countries, and as the ability to read, to speak and 
to write Spanish increases in the United States. Bonds of a common interest 
in finance and in commerce are already being forged between the peoples of the 
several American republics. These bonds will be followed and strengthened 
by others in due time. There Avill thus be developed a genuine American public 
opinion and a genuine American understanding and point of view, that will be 
common alike to the people of the United States and to those of the other 
republics to the south. 

In order that Mr. Bacon's Report may most effectively accomplish its purpose, 
it is now published in two editions, an English edition for circulation among 
English speaking people, and a Spanish and Portuguese edition for circulation 
in Latin America. 

Nicholas Murray Buti^r. 

July 4, 191 5. 



111 



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CONTENTS 

Page 

Preface by Dr. Nicholas Murray Butler iii 

Note by Mr. Bacon viii 

Introduction : 

President Root's Letter of Instructions I 

Editorial from The American Journal of International Law 5 

Mr. Bacon's Preliminary Report 10 

For Better Relations with our Latin American Neighbors : 

I. Preliminary Observations 13 

II. The Journey to South America 22 

Brazil 22 

Rio de Janeiro 23 

Argentina 27 

Buenos Aires 27 

Uruguay 32 

Montevideo 32 

Chile 35 

Santiago de Chile 35 

Peru 40 

Lima 40 

Panama 46 

Interview in The New York Evening Post 49 

Editorial from The American Journal of International Law 54 

Appendices : 

I. Paris 59 

Luncheon of Mr. Gabriel Hanotaux 59 

II. Rio de Janeiro 61 

Historical Institute of Brazil 61 

Remarks of Dr. de Oliveira Lima 61 

Response of Mr. Bacon 62 

Reception at the American Embassy 63 

Remarks of Dr. de Oliveira Lima 63 

Response of Mr. Bacon 63 

Reception at the National Library 70 

Address of Senator Ruy Barbosa 70 

Response of Mr. Bacon 79 

Letter of Senhor Helio Lobo 90 

III. Buenos Aires 92 

Dinner of Dr. E. S. Zeballos 92 

Remarks of Dr. Zeballos 92 

Response of Mr. Bacon 92 

Reception of the Faculty of Law 95 

Remarks of Dr. Luis M. Drago 95 

Address of Mr. Bacon 95 



contents — Continued Page 

IV. Montevideo Io6 

Luncheon of Mr. Nicolay Grevstad 106 

Remarks of Mr. Grevstad *■ 106 

Response of Mr. Bacon 106 

Reception at the Ateneo 107 

Address of Mr. Bacon 107 

Dinner of Sefior Emilio Barbaroux, Minister of Foreign Affairs. 115 

Remarks of Sefior Barbaroux 115 

Response of Mr. Bacon 115 

V. Santiago de Chile "7 

Reception at the University of Chile 117 

Remarks of Dr. Domingo Amunategui Solar, Rector of the 

University 117 

Address of Dr. Luis Barros Borgono 117 

Address of Mr. Bacon 122 

Note of the National Society of International Law 123 

VI. Lima 126 

Reception at the University of San Marcos 126 

Address of Dr. Romero 126 

Address of Mr. Bacon 127 

Banquet of Sefior Tudela y Varela, Minister of Foreign Affairs. 130 

Address of Sefior Tudela y Varela 130 

Response of Mr. Bacon 130 

Reception at the Centro Universitario. 131 

Remarks of Sefior Luis G. Rivera 131 

Reception of the Bar Association 132 

Address of Dr. Manuel F. Bellido 132 

Address of Dr. Anibal Maurtua 133 

Response of Mr. Bacon 135 

Reception of the Geographical Society 141 

Remarks of Sefior Jose Balta 14 1 

Response of Mr. Bacon 14 1 

Banquet of the Faculty of the University of San Marcos 142 

Remarks of Dr. Romero 14 2 

Response of Mr. Bacon 143 

Letter of Dr. Juan Bautista de Lavalle 144 

VII. Monographs Printed and Distributed in Latin America : 

The Carnegie Endowment for International Peace 145 

Division of Intercourse and Education . T 49 

Division of Economics and History 15 1 

Division of International Law I 5" 

Associations for International Conciliation 162 

Proposed Court of International Justice 167 

Proposed Academy of International Law at The Hague 175 

National Committees for the Third Hague Peace Conference. . . 180 



FOR BETTER RELATIONS WITH OUR 
LATIN AMERICAN NEIGHBORS 



A JOURNEY TO SOUTH AMERICA 



Note 

In this account of a visit made to South America in the fall of 1913, as the 
representative of the Carnegie Endowment for International Peace, upon the 
invitation of Dr. Nicholas Murray Butler, Director of the Division of Intercourse 
and Education, it has seemed well, for the sake of the record, to begin with the 
letter of instructions addressed to me by the Honorable Elihu Root, President 
of the Endowment, an editorial from the American Journal of International Law, 
commenting on the objects of the mission, and my brief letter to the Trustees 
upon my return, reporting what had been done. These are followed by a more 
detailed narrative account of the visit in each capital, another editorial from the 
American Journal of International Law discussing the results of the mission, and, 
in conclusion, an interview reporting some impressions of what had been seen and 
heard on the journey. In the Appendices will be found copies of addresses, 
letters, and drafts, or disefios, of addresses which were either delivered or pub- 
lished as articles in South American reviews. 

Robert Bacon. 

New York, June, 19 14. 



viu 



INTRODUCTION 



President Root's Letter of Instructions 

Washington, D. C, July 20, 1913. 

Hon. Robert Bacon. 

Sir: 

I beg to confirm your appointment, by formal action of the Carnegie Endow- 
ment for International Peace, as the representative of the Endowment to visit 
South America at such time as you shall determine upon during the present year. 
The object of this mission, which you have already gratified us by promising to 
undertake, is to secure the interest and sympathy of the leaders of opinion in 
South America in the various enterprises for the advancement of international 
peace which the Endowment is seeking to promote, and by means of personal 
intercourse and explanation to bring about practical cooperation in that work in 
South America. You are already aware, and will readily make plain to our 
friends in South America, that Mr. Carnegie has placed in the hands of trustees 
the sum of ten million dollars, the income of which is to be devoted by them to 
the promotion of international peace. The trustees, upon consideration of the 
way in which they should seek the end for which the trust was established, for- 
mulated the following statement of specific objects to which the income of the 
trust should be devoted. 

(a) To promote a thorough and scientific investigation and study of 
the causes of war and of the practical methods to prevent and avoid it. 

(b) To aid in the development of international law, and a general 
agreement on the rules thereof, and the acceptance of the same among 
nations. 

(c) To diffuse information, and to educate public opinion regarding 
the causes, nature, and effects of war, and means for its prevention and 
avoidance. 

(d) To establish a better understanding of international rights and du- 
ties and a more perfect sense of international justice among the inhabitants 
of civilized countries. 



2 MR. BACON'S VISIT TO SOUTH AMERICA 

(e) To cultivate friendly feelings between the inhabitants of different 
countries and to increase the knowledge and understanding of each other by 
the several nations. 

(f) To promote a general acceptance of peaceable methods in the set- 
tlement of international disputes. 

(g) To maintain, promote, and assist such establishments, organiza- 
tions, associations, and agencies as shall be deemed necessary or useful in 
the accomplishment of the purposes of the corporation, or any of them. 

To accomplish these objects the work of the trust has been organized in three 
divisions: (i) the Division of Intercourse and Education, of which Dr. Nicholas 
Murray Butler, President of Columbia University, is Acting Director; (2) the 
Division of Economics and History, of which Dr. John Bates Clark is Director; 
(3) the Division of International Law, of which the Secretary of the Endowment, 
Dr. James Brown Scott, is Director. The various objects above enumerated have 
been appropriately assigned to these three divisions. The methods and details of 
activity on the part of each of the divisions you will find indicated in a series of 
monographs, which will be handed to you herewith. From these you will per- 
ceive two things : first, that it is the purpose of the trustees, not that the trust 
organization shall become a missionary seeking to preach the gospel of peace or 
directly to express its own ideas to the world, but rather to promote and advance 
in each country and in all countries the organization and activity of national 
forces in favor of peace. It is not so much to add a new peace organization to 
those already existing in the world as it is to be a means of giving renewed vigor 
to all the activities which really tend in a practical way towards preventing war 
and making peace more secure. Second, that in aid of the work of each of these 
three divisions an extensive and effective organization has been perfected in 
Europe as well as in America, including a great number of the most eminent and 
highly respected statesmen, publicists, and leaders of modern thought. 

The respect and friendship which the trustees of the Endowment entertain 
for the peoples of Latin America and for the many distinguished Latin Americans 
with whom many of the trustees have most agreeable relations of personal friend- 
ship, lead us to desire that the work of the Endowment may have the same active 
and useful cooperation in South America that it has already secured in Europe. 
For this purpose we should be glad to have you make to the gentlemen whom 
you meet in the South American capitals a full and thorough explanation of the 
history and purposes and methods of the Endowment. 

You will observe that one of the means by which the Division of Intercourse 
and Education proposes to advance international good understanding is a series 
of international visits of representative men. Accordingly, under the auspices 
of the Division, directly or indirectly, Baron d'Estournelles de Constant of 
France, the Baroness von Suttner of Austria, and Professor Nitobe of Japan 
have already visited the United States, and President Eliot of Harvard Univer- 
sity has visited India, China, and Japan, and Dr. Hamilton Wright Mabie is now 



LETTER OF INSTRUCTIONS 6 

in Japan. Your visit to South America comes in this category, but it has a more 
definite and specific purpose than any of the other visits which I have enumerated 
or which are contemplated under the head that I have mentioned; for it is not 
merely to strengthen good understanding by personal intercourse between a rep- 
resentative North American and representative South Americans, but it is also 
to introduce to representative South Americans personally the work and purposes 
and ideals of the Endowment, and to invite our friends in South America to 
cordial and sympathetic union with us in promoting the great work of the trust. 
It is not expedient or desirable in advance of your visit to be too specific 
regarding the scope and method of cooperation which may be possible with our 
South American friends, but you will readily observe in the monographs handed 
to you a number of ways in which such cooperation may be accomplished with but 
little delay. For example : (a) the formation of national societies of international 
law to be affiliated with the American Institute of International Law ; (b) the 
presentation to the different governments of the opportunity to participate in the 
proposed Academy of International Law at The Hague by providing for the 
sending on the part of each government of a representative student to that 
academy, if organized. You will notice that the organization of such an academy 
to bring together students from the whole world under the leaders of thought 
in international law each summer depends very largely upon the question whether 
the governments of the world feel the need of such an institution sufficiently to 
give it their formal support by sending a representative student, (c) The ap- 
pointment of national committees for the consideration of contributions to the 
program of the next Hague Conference and making arrangements for the inter- 
communication of such committees among all the American countries, (d) The 
establishment of national societies for international conciliation to be affiliated 
with the parent Association for International Conciliation at Paris, (e) To ar- 
range for systematic furnishing of data for the work of the Division of Eco- 
nomics and History in accordance with the program laid down at Berne by the 
congress of economists in the summer of 191 1. You will observe that Dr. Kin- 
ley, who was appointed a member of the Committee of Research with special 
reference to South America, will follow you in a visit to South America within 
a short period, and will suggest specifically the things that can be done in aid of 
the researches of this division. Your office in this respect should be to prepare 
the way for Dr. Kinley's reception and cooperation with him. 

The trustees of the Endowment are fully aware that progress in the work 
which they have undertaken must necessarily be slow and that its most substan- 
tial results must be far in the future. We are dealing with aptitudes and im- 
pulses firmly established in human nature through the development of thousands 
of years, and the utmost that any one generation can hope to do is to promote 
the gradual change of standards of conduct. All estimates of such a work and 
its results must be in terms not of individual human life, but in terms of the 
long life of nations. Inconspicuous as are the immediate results, however, there 



4 MR. BACON'S VISIT TO SOUTH AMERICA 

can be no nobler object of human effort than to exercise an influence upon the 
tendencies of the race, so that it shall move, however slowly, in the direction of 
civilization and humanity and away from senseless brutality. It is to participate 
with us in this noble, though inconspicuous, work that we ask you to invite our 
friends in South America with the most unreserved and sincere assurances of 
our high consideration and warm regard. 

Very faithfully yours, 

Euhu Root, 

President. 



Editorial from The American Journal of International Law, 

July, 1913 

Announcement has been made by the Carnegie Endowment for International 
Peace that the Honorable Robert Bacon, formerly Secretary of State and Ameri- 
can Ambassador to France, will make a visit under its auspices to South America 
during the coming fall. The specific objects of Mr. Bacon's visit have not yet 
been made public, but the general object of the mission is stated to be to secure 
the interest and sympathy of the leaders of opinion in South America in the 
various enterprises for the advancement of international peace which the Endow- 
ment is seeking to promote, and by means of personal intercourse and explanation 
to bring about the practical cooperation of South America in that work. 

The aims and purposes of the Carnegie Endowment have already several 
times been commented upon in the columns of this Journal. In the issue of 
January, 191 1, we printed Mr. Carnegie's letter, which accompanied the deed 
transferring the bonds, in which Mr. Carnegie stated his reasons for establishing 
the trust, and in the issue of April, 191 1, the permanent organization effected by 
the Trustees and the specific purposes to which they would devote the income 
from the trust were stated. In the following number we printed an address of 
Dr. Nicholas Murray Butler, a member of the Board of Trustees and of the 
Executive Committee of the Endowment, delivered at the opening of the Lake 
Mohonk Conference on May 24, 191 1, in which he explained the division of the 
Endowment's work into three general departments, the Divisions of Intercourse 
and Education, Economics and History, and International Law, and stated what 
the Trustees hoped to accomplish in each division. 

The Year Books issued by the Endowment for 191 1 and 1912 supply the 
details of the work being done in each of these divisions, and some idea may be 
obtained from them of the enterprises which the Endowment might hope to extend 
to South America as the result of Mr. Bacon's visit. 

In the Division of Intercourse and Education there has been appointed a 
corps of correspondents and an advisory council for Europe and Asia composed 
of prominent and influential men in the different countries. No provision for 
such an organization for Latin America seems yet to have been made, and the 
extension of the European organization to those countries would seem to be a 
prime object of Mr. Bacon's visit. There is also reference in the Year Books 
to an educational exchange with Latin America, including not only an exchange 
of professors, but also an exchange of students. It appears from the last Year 
Book that the educational exchange with Japan has already. been successfully 
carried out by the visit to the United States during 1911-1912 of the well-known 
Japanese educator, Dr. Inazo Nitobe, and the return visit to Japan during the 



6 MR. BACON'S VISIT TO SOUTH AMERICA 

present year of Dr. Hamilton W. Mabie; but it does not appear to have been 
practicable so far to bring about such an exchange with Latin America, although 
provision for it has been made each year by the officers and Trustees. It was 
planned to put the exchange with Latin America into operation during the year 
1912, and arrangements were begun for the visit to the United States of Dr. Luis 
M. Drago, formerly Minister of Foreign Affairs for the Argentine Republic, but 
the state of Dr. Drago's health was such that the plan could not be consummated. 
Perhaps the presence of Mr. Bacon in South America will be utilized to arrange 
a definite program for carrying out this project. 

Another project reported under this Division is the scheme for international 
visits of representative men. . Such visits have already been inaugurated with 
Asia by the recent trip of Dr. Charles W. Eliot, and with Europe by the visit of 
Baron d'Estournelles de Constant and several other eminent Europeans to the 
United States. The trip of Mr. Bacon is evidently the first step in such an inter- 
change of visits with Latin America. This Division seems also to be particu- 
larly interested in the extension of branches of the Association for International 
Conciliation, which has its headquarters in Paris and a strong branch in New 
York City. In this connection it is interesting to note that if the recommenda- 
tions of the Acting Director of the Division of Intercourse and Education are 
followed by the Trustees, it is likely that the Endowment will rely more upon 
this form of propaganda in the future, as distinct from the work of peace so- 
cieties which have heretofore been generally the agents of popular propaganda 
in the peace movement. The following extract from the report of the Acting 
Director to the Executive Committee, dated November 16, 1912, shows the clear 
distinction between the two forms of organization and the separate fields of ac- 
tivity of each : 

The Acting Director is entirely clear in the opinion formed as a result 
of two years of study of conditions which prevail both in European countries 
and in the United States, that the work of propaganda in support of the ends 
which the Endowment has been established to serve, can be carried on most 
effectively and economically not through peace organizations alone, but 
through organizations having a broader scope and making a wider appeal. 
Those persons who become members of a society whose name indicates that 
it is devoted to peace, are already converted. In every nation in the world 
there are hosts of right-thinking and well-minded men and women who, 
while wholly unwilling to affiliate themselves with any peace society, are 
ready and anxious to assist in the work of promoting better international 
understandings and closer international relationships from which peace will 
result as a by-product. The function of the peace societies is a distinctive 
and very important one. They may well form a compact and effective body 
of workers in the cause of international peace and arbitration, who consti- 
tute as it were the advance guard of the great army which it is hoped can be 
recruited and brought into active service. In the present state of public 
opinion throughout the world, the best use which the Carnegie Endowment 
can make of such portion of its funds as can be devoted to the work of 
active propaganda, is to build up and support organizations which give evi- 



AMERICAN JOURNAL OF INTERNATIONAL LAW V 

dence of a willingness and a capacity to promote closer international relations, 
to advance the knowledge on the part of each civilized people of its fellows, 
and to multiply the ties of friendship and concord between the great nations 
of the earth. Among these organizations peace societies will of course be 
found, but it would not be judicious to entrust the whole work of propa- 
ganda to them. 

Societies of international conciliation have recently been started in Germany, 
Great Britain and Canada, and steps are being taken to organize an association 
of this kind in Argentina. It may be feasible for Mr. Bacon on his forthcoming 
trip to suggest the establishment of such organizations in the other countries 
which he will visit. 

Perhaps the most far-reaching and important work the Endowment is doing 
is that which is being conducted under the Division of Economics and History. 
A full account of the work of this Division and of the conference of economists 
held under its auspices at Berne in 191 1 for the purpose of devising a plan of 
inquiry and investigation is contained in the editorial columns of this Journal 
for October, 191 1, p. 1037. There is also printed therein the full program 
recommended by that conference. It appears from the reports of the Director 
of this Division that the members of the Conference of Berne have since been 
formed into a permanent Committee of Research to supervise the actual work 
of investigation, which is entrusted to collaborators able to devote a large portion 
of their time to the work and to put the results in form suitable for publication. 
An American economist having unusual familiarity with South American condi- 
tions and large attainments in economic science, both theoretical and practical, 
Professor David Kinley of the University of Illinois, has been added to the Com- 
mittee of Research, and he has planned a line of research having its field in South 
America. Mr. Bacon will probably find the occasion opportune to explain the 
work of this Division and to invite the aid and cooperation of the economists of 
South America in extending to these countries the program of studies outlined 
by the Conference at Berne. 

The Journal has likewise had occasion to comment on the organization and 
projects of the Division of International Law. In the number for October, 1912, 
an editorial comment explained the relations which had been established between 
the Institute of International Law and the Division of International Law of the 
Endowment, under which the former has accepted the title and performs the 
functions of General Legal Adviser of the Division. In the same issue there was 
a comment upon the organization of the American Institute of International Law, 
and further comment and information concerning this project was given in an 
editorial in the January number for 1913. The field of usefulness of the 
European Institute to the Endowment seems to be limited to the Eastern Hemi- 
sphere, and if it is the intention of the Trustees to secure a similar advisory body 
for Latin America, the proposed American Institute would seem to be an admir- 
ably constituted body to perform these functions, and it has the advantage of 



8 MR. BACON'S VISIT TO SOUTH AMERICA 

being already in existence, and will no doubt be willing to follow the example 
of its distinguished European prototype and enter into similar arrangements 
with the Division of International Law. 

Unlike the European Institute, a feature of the American Institute requires 
the establishment of national societies of international law. Mr. Bacon's visit 
could not only, therefore, be utilized to accelerate the organization of the Institute 
in those countries of South America which may not have progressed so far as 
others in this organization, but also to suggest and aid in the formation of national 
societies of international law to be affiliated with the Institute in accordance with 
the plan already outlined in the previous issues of the Journal above referred to. 

Another project of the Division of International Law in which Mr. Bacon 
could be particularly useful is the proposed Academy of International Law at 
The Hague. This proposal is briefly outlined in a comment in the January, 1912, 
number of the Journal at p. 205. It appears from the report of the Director of 
the Division of International Law, dated October 26, 1912, that before com- 
mitting itself definitely to the support of such an Academy, the Executive Com- 
mittee of the Endowment wishes to be assured that the Academy is approved 
generally by the countries represented at the Second Hague Conference, and that, 
if established, these countries will aid and assist in securing a student body who, 
after having taken the courses at the Academy, will occupy such positions in 
their country as to make their influence felt in matters pertaining to international 
relations. It is explained that by this is meant students drawn from the different 
branches of the government service, such as the diplomatic and consular services, 
and the military, naval and civil establishments. The successful operation of 
such an arrangement necessarily requires the cordial sympathy and support of the 
South American countries, and Mr. Bacon's former high position in the Govern- 
ment of the United States will doubtless make it possible and proper for him to 
broach this subject to the high officials whom he will meet in the countries visited 
and to secure if possible their assurance of cooperation. 

Mr. Bacon is now in the Philippine Islands, and the details of the itinerary 
which he will follow in South America have not been published. It is expected, 
however, that he will return from the Orient by way of Europe, will sail from 
Lisbon about the middle of September, and will return to New York before 
Christmas. He will visit as many countries on the eastern and western coast of 
South America as his limited time will permit. 

Mr. Bacon will be the first American statesman to visit South America since 
the memorable visit of Senator Elihu Root, then Secretary of State of the United 
States. Mr. Root's trip was such a success in the good results accomplished and in 
the ties of friendship and good will resulting from it, that it is hardly to be ex- 
pected that Mr. Bacon, traveling as he is in a private capacity, will attain such 
marked results. If he succeeds, however, in small measure, in awakening the sen- 
timents which were expressed to Mr. Root on every hand, and if he spreads the 
gospel of good will and friendship, of good understanding and conciliation, of jus- 



AMERICAN JOURNAL OF INTERNATIONAL LAW » 

tice and of peace, which it seems to be the desire and purpose of the Carnegie 
Endowment to spread to South America, as it has done, and is doing, in North 
America, Europe and Asia, his mission will have been an unqualified success and 
the Trustees of the Endowment which sent him will have just cause for congratu- 
lations for this enlargement and extension of their field of activity. 



Mr. Bacon's Preliminary Report 



To the Board of Trustees oe the 

Carnegie Endowment eor International Peace. 

Sirs: 

I have the honor to inform you that, in pursuance of the letter of instruc- 
tions of the Honorable Elihu Root, dated July 20, 1913, and delivered to me in 
Paris on September 14th by Dr. James Brown Scott, I have completed a visit to 
South America undertaken as the representative of the Carnegie Endowment for 
International Peace. 

After a week spent in Paris in the preparation of material with the generous 
and invaluable assistance of Dr. Scott and Seiior Alejandro Alvarez, I proceeded 
to Lisbon, sailing from that port on September 23rd for Rio de Janeiro, accom- 
panied by my wife and daughter, Judge Otto Schoenrich and Mrs. Schoenrich 
and Mr. William R. Hereford. 

While in South America I visited the capitals of Brazil, Argentina, Uruguay, 
Chile and Peru. The inaccessibility of the capitals of the other Republics and the 
lack of satisfactory steamship and railway connections, made it impossible to ex- 
tend this itinerary in the time at my disposal. 

The universal admiration and respect in South America for the President 
of the Endowment, Mr. Root, the affectionate regard of his many friends in these 
countries, assured for me, as the bearer of his letter of instructions, the most 
cordial reception. In every country which I visited the leaders of opinion testi- 
fied in public addresses and in personal conversations to the high esteem in which 
the President of your Board is held in South America, and expressed their 
earnest desire to cooperate with him and his fellow-trustees in the work of 
the Endowment. 

In the countries mentioned I met the representative men, and by means of 
addresses, interviews and personal intercourse, was able to introduce to them the 
work and purposes and ideals of the Endowment. 

In Rio de Janeiro addresses were delivered at the Public Library, under the 
auspices of the Brazilian Academy and the Institute of the Order of Advocates, 
and at the American Embassy ; in Montevideo, at the Ateneo, under the auspices 
of the University ; in Buenos Aires, before the Faculty of Law of the University ; 
in Santiago, at the University of Chile ; in Lima at the University of San Marcos, 
and before the Colegio de Abogados. 



MR. BACON'S PRELIMINARY REPORT 11 

I shall submit later, in the language in which they were delivered, copies of 
the principal addresses and of remarks made upon other public occasions ; also a 
collection of the principal articles appearing in the press. 

Year Books of the Endowment and printed pamphlets, some of which were 
for publication in newspapers and reviews, were distributed among the represent- 
ative South Americans. Copies of these pamphlets, which were descriptive of 
activities in which the Endowment is directly or indirectly interested, will be 
included in a subsequent report. 

On every side the invitation to our friends in South America to cordial and 
sympathetic union with the Trustees in the various enterprises which the Endow- 
ment is seeking to promote, met with enthusiastic response. 

The proposed exchange of visits of representative men was most heartily 
approved and might be put into execution without delay. The exchange of pro- 
fessors and students met with cordial approval. The time seems ripe to take up 
the question of the exchange of professors, and I feel sure that whenever the 
Trustees are prepared to make a definite proposal regarding the exchange of 
students they will find a willing cooperation in the five Republics which I visited. 

It was my good fortune to be in Lima while the Pan-American Medical 
Congress was in session, and at the opening meeting of that body of scientists, to 
hear one of the speakers, Dr. Cabred, refer with appreciation to the work of 
the Carnegie Endowment for International Peace. I was deeply impressed by the 
fact that these men, gathered together from the American republics for a com- 
mon, humanitarian purpose, well represented the "international mind," and I took 
the liberty of suggesting to the President of the Congress, Dr. Odriozola, the 
possibility of selecting from the Congress representatives who might be willing 
to visit the United States in connection with the exchange of visits proposed by 
the Endowment. 

The way has been prepared for the formation of national societies for con- 
ciliation to be affiliated with the Associations for International Conciliation in 
Paris and New York. In Rio de Janeiro, Senhor Helio Lobo; in Buenos Aires, 
Senor Benjamin Garcia Victorica; and in Lima, Dr. Juan Bautista de Lavalle, 
have accepted the position of Honorary Secretary. 

Societies of International Law to be affiliated with the American Institute of 
International Law, have either been actually formed or are in process of forma- 
tion in Rio de Janeiro, Buenos Aires, Montevideo, Santiago and Lima. 

I had the honor of presenting to the Governments of the countries which I 
visited the opportunity to participate in the proposed Academy of International 
Law at The Hague, and of calling their attention to the necessity of appointing 
national committees for the consideration of contributions to the program of the 
next Hague Conference and making arrangements for the intercommunication 
of such committees among all the American countries. 

The representatives of the several Governments with whom I talked were 
receptive without exception. The proposed Academy of International Law at 



12 MR. BACON'S VISIT TO SOUTH AMERICA 

The Hague made an immediate appeal to their sympathy and interest and they 
also expressed their appreciation of the importance of the early appointment of 
national committees to discuss contributions to the program of the next Hague 
Peace Conference. 

In all the principal addresses I took the opportunity to describe the work 
of the Division of Economics and History of the Endowment, and to bespeak for 
it the assistance of our friends in South America in arranging for the systematic 
furnishing of data in accordance with the program laid down at Berne. Special 
attention was called to the forthcoming visit to South America of Dr. Kinley 
as the representative of the Division. 

In every capital distinguished men gave their sympathetic, unfailing and in- 
valuable cooperation and assistance. These men devoted their time and thought 
with the utmost willingness. Through their efforts 1 was afforded the necessary 
opportunities to make to the leaders of opinion in South America full and 
thorough explanations of the history and purposes and methods of the 
Endowment. 

Through the courtesy of the Ministers of Foreign Affairs for their respec- 
tive countries I had the privilege of audiences with President Hermes da Fonseca, 
of Brazil ; President Batlle y Ordonez, of Uruguay ; Vice-President de la Plaza, 
of the Argentine Nation, President Saenz Peha being absent from the capital 
because of illness; President Barros Luco, of Chile, and President Billinghurst 
of Peru. 

Particular acknowledgment should be made also of the valuable assistance 
and cooperation received from the diplomatic representatives of our own country. 
Mr. Edwin Morgan, our Ambassador in Rio de Janeiro, and the Secretary of 
Embassy, Mr. Butler Wright; Mr. Garrett, the American Minister in Buenos 
Aires, and the Military Attache, Major Shipton; Mr. Grevstad, the American 
Minister in Montevideo; Mr. Harvey, Charge d' Affaires in Santiago, and the 
Military Attache, Captain Biscoe ; Mr. Benton McMillin, the American Minister 
in Lima, and Mr. Pennoyer, the Secretary of Legation, all personally devoted a 
great deal of their time and attention to furthering the objects of my visit. I 
cannot express my gratitude for their hospitality and for their advice and assist- 
ance. 

At a later date I shall make a full report of my visit to South America. In 
presenting this brief summary permit me to renew the assurances of my high 
appreciation of the honor conferred upon me by the Trustees in appointing me as 
their representative to visit South America. 

Respectfully submitted, 

Robert Bacon. 
December 24, 191 3. 



For Better Relations with Our Latin American Neighbors 



I. PRELIMINARY OBSERVATIONS 

In a letter to the Trustees of the Carnegie Endowment for International 
Peace I reported very briefly the principal matters of interest in a journey to 
Brazil, Argentina, Uruguay, Chile and Peru, undertaken as the representative of 
the Carnegie Endowment for International Peace, in pursuance of an invitation 
received, under date of April i, 1913, from Dr. Nicholas Murray Butler, director 
of the Division of Intercourse and Education, and a letter of instructions, dated 
July 20, 1913, from the Honorable Elihu Root, the President of the Endowment. 

In this more detailed account of the journey I have tried to tell in narrative 
form just what was done in each city, for in that way, perhaps, better than in any 
other, it is possible to give an impression of the extreme kindness of the 
reception which was everywhere extended to me, as the representative of the 
Carnegie Endowment for International Peace, and of the cordial sympathy and 
interest manifested on every side in the work and purposes of the Endowment. 
The friendly attitude of the press in all the countries which I visited, the extreme 
courtesy of the various governments, the spontaneous approval of the leaders of 
opinion as expressed in letters and telegrams and personal interviews, and the 
manifest cordiality of the people, afford convincing proof that the Trustees will 
find in South America a valuable and energetic cooperation in the noble work 
upon which they are engaged. 

Reference is made to many persons who were most helpful to me. The record 
is by no means complete, but in another place I have mentioned more fully those 
in official and unofficial life to whom I have been chiefly indebted for aid, advice 
and information, trying to express at the same time something of my deep sense 
of obligation and gratitude toward them. 

By history even more than by nature the countries of the North and South 
American continents are bound closely together. 

At all times since the revolt of the South American colonies from Spain at 
the beginning of the last century, there have been distinguished leaders in public 
affairs in this country who have voiced the friendship of the United States for the 
nations to the south of us. Henry Clay, as early as 1816 (in a speech on the 
Lowndes Bill to reduce the direct taxes imposed during the war of 1812), fore- 
shadowed the possibility of our aiding the Spanish American colonies in their 
struggle for independence. In 1818, in one of his most brilliant arguments, advo- 
cating "that our neutrality be so arranged as to be as advantageous as possible to 
the insurgent colonies," and that "the United States send a Minister to the 'United 



14 MR. BACON'S VISIT TO SOUTH AMERICA 

Provinces of Rio de la Plata,' thereby recognizing that revolutionized colony as an 
independent state," Clay pictured with poetic prophecy the wonderful lands to 
which we are joined by the Isthmus of Panama. 

James G. Blaine's part in bringing about closer relations between the Ameri- 
can Republics is well known. Blaine in 1881 convoked the Pan-American Con- 
ference which, owing to circumstances, did not convene until eight years later, 
when Blaine was again the Secretary of State. In extending his original note of 
invitation in 1881, Blaine acted upon the inspiration and initiative of President 
Garfield, who was keenly sensible of the advisability of closer union among the 
republics of this continent and to whose statesmanship may be attributed the 
first of those Pan-American Conferences which are now held regularly. In 1881, 
President Garfield, acting through his Secretary of State, proposed a Conference 
which should have the sole object of discussing methods of preventing war 
between the nations of America. Blaine's statesmanship foresaw the practical 
advantages of reciprocal commercial relations Avhich should more intimately weld 
the American nations together; and this with numerous other topics formed the 
program for the first Pan-American Conference which met in Washington in 
1889. 

In our own day, Elihu Root is the statesman who has most conspicuously 
exemplified our traditional policy of American unity. His friendship for our 
sister republics has manifested itself in repeated public declarations which have 
clearly outlined a rule of conduct for us in our relations with the other nations on 
this continent. His doctrine is the doctrine of sympathy and understanding, of 
kindly consideration and honorable obligation ; and when his views, which combine 
the idealism of Mr. Clay and the utilitarianism of Mr. Blaine, have come to be 
accepted generally as the foreign policy of the United States in this hemisphere, 
the question of how the United States and her sister republics on this continent 
can be drawn into closer relations will have found a complete answer. 

That we have not as a nation aggressively acted upon the advice of these 
leaders, giving to their declarations only tacit assent unsupported by positive 
action, has been largely due to the fact that our country has been intensely occu- 
pied with its own affairs, its own marvelously rapid development and its own 
internal problems. The eminent Dr. Roque Saenz Pena, in a forceful address 
delivered in Washington in 1889, when he was a delegate to the first Pan-Ameri- 
can Conference, frankly expressed his realization of this fact. 

Dr. Saenz Pena upon that occasion said : 

The truth is that our knowledge of each other is limited. The repub- 
lics of the North of this continent have lived without holding communication 
with those of the South, or the nations of Central America. Absorbed, as 
they have been, like ours, in the development of their institutions, they have 
failed to cultivate with us closer and more intimate relations. 

While I am confident that this true explanation of our mistakes is accepted 
by the discerning statesmen of our sister republics, it has been only natural 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 15 

that the apparent, and often actual neglect of our opportunities to cultivate a 
better understanding of our neighbors, our ignorance of their affairs and our 
seeming national indifference to their progress should have tended to engender on 
their part sentiments of resentment, distrust and suspicion. Mr. Root's 
historic visit to South America in 1906 has been responsible, more than any other 
single factor, for the correction of these impressions of us. Our people at large 
have not even a faint conception of the great service Mr. Root has done them 
by his sympathetic attitude and by his repeated utterances of our national policy, 
but this service is recognized in all parts of South America, where he is regarded 
with the deepest affection and respect. 

The most effective way of carrying out Mr. Root's instructions seemed to be 
by conversations with representative South Americans, addresses delivered under 
the auspices of universities or learned societies, and articles in newspapers and 
reviews. I was afforded every opportunity to employ these various methods. 
Public addresses were delivered in each capital visited, numerous conferences 
were held with leading citizens, and the press gave the widest possible circulation 
to descriptions of the work of the Endowment and the activities in which it is 
interested. 

There is, I believe, no field more fertile for the work of the Endowment 
than South America and no time more opportune than the present to cultivate 
good relations between this country and the republics of the great continent to 
the south of us. 

It is a fact now generally recognized that the people of this country have 
been and still are ignorant of the actual conditions of these great Latin-American 
nations which are advancing in the path of progress as rapidly as we have ad- 
vanced at any period of our history. We have been neglectful of opportunities 
not only to improve our commercial relations with our sister republics, but, what 
is of infinitely greater importance, of opportunities to cultivate intellectual inter- 
course and sentiments of friendly understanding which shall bind us more closely 
to each other in the future. 

It becomes, then, a most urgent duty to overcome our ignorance and repair 
our mistakes. In no better way, I think, can these results be achieved than 
in the way the Trustees of the Endowment have indicated, and it is a matter 
for profound satisfaction that our friends in South America have expressed 
full sympathy with the plans of the Endowment and have promised their ener- 
getic cooperation. 

The plan of the Division of Intercourse and Education for "the visit to 
various countries of representative men of other countries for the purpose of 
making better known the spirit, institutions and ideals of the several nations," 
as outlined in the monograph which formed a part of my general instructions, 
was accepted by the men I met in South America with unanimous approval. 
Such an exchange of visits would be productive of immediate good. Possibly by 
no other method could results be obtained which would be so quickly apparent and, 



16 MR. BACON'S VISIT TO SOUTH AMERICA 

although the work of the Trustees is wisely builded upon a consideration of the 
far future rather than of our own day, it is nevertheless well to bear in mind the 
public desire for some tangible token of progress which would serve as a popular 
incentive and inspiration. It is very gratifying to know that steps have been 
taken to carry into effect the plan to have distinguished South Americans visit 
the United States, and it is to be hoped that nothing will be allowed to retard the 
work in this hemisphere which the Division has already begun so successfully in 
connection with the Far East. 

In regard to the selection of South Americans to come to the United 
States, it has seemed to me that it might be advisable to allow this to be done 
by scientific or educational societies under whose auspices the visits could be 
made. In all of our great sister republics to the south there are men in 
public and private life well qualified for such a mission, men of brilliant 
attainments who speak English and have an excellent knowledge of conditions 
in the United States. Those whom the Endowment might select to visit 
South America from this country, unless they were able to speak in Spanish 
or at least in French, would find their usefulness limited. In Argentina and 
in Chile more English is spoken than elsewhere on the South American continent, 
but even in these countries the knowledge of the language is confined to com- 
paratively few. French is spoken among the cultured classes, but, while a knowl- 
edge of French is much more common with them than it is with us, any 
representative of the Endowment depending only upon French and English 
would often experience the need of Spanish. 

The foregoing remarks might apply with added force to the proposed 
exchange of professors of universities, unless, of course, it were desired that the 
professor visiting the South American universities should give his lectures in 
English. 

The schools and colleges of Brazil; the University de la Plata and the Uni- 
versity of Buenos Aires in the Argentine ; the University of Montevideo ; the 
University of Chile in Santiago, and the ancient University of San Marcos in 
Lima, are all important seats of learning with distinguished faculties, and a regular 
exchange of professors with them should be instituted as soon as possible. It 
might be well for professors who are sent from the United States to divide their 
time between the principal Latin American universities. The professors to be 
invited to this country might include one from each of the Republics mentioned, 
if that number should not be too large for the purpose of the Endowment, and 
they, also, might alternate at five of our leading universities, which would enable 
a professor to remain about six weeks at each university, the lectures thereby 
covering the entire academic year. 

The practical good done by the Harvard and Columbia exchanges of pro- 
fessors with France and Germany is sufficient indication of the benefits to be 
derived from such exchanges with South America. The condition of a nation can 
be judged very accurately by the conditions existing at its typical colleges. When 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 17 

we know what and how the young men of a country are taught and the attitude 
they assume toward the acquisition of knowledge, we can form a conception of the 
spirit of a people which will not be far from the truth. South American educators 
discussed with great interest the interchange of professors proposed by the En- 
dowment and will lend to it their hearty support. 

In regard to the proposed exchange of students of universities of South 
America and our own universities, I found a general commendation of the idea, 
but it was felt that details of the project would have to be clearly presented 
before all doubts of its entire advisability were allayed. Latin-American 
universities and our own are dissimilar in many respects. The opinion was 
expressed that many parents would hesitate to send their sons to our far-away 
universities where the students are allowed much greater liberty than they are 
accustomed to enjoy in South American schools. It was feared that in the absence 
of family control and family supervision the young men might succumb to tempta- 
tion. Of course this is not unlike the problems which parents in the United States 
must face when they are sending their boys away from home, but the added 
distance contemplated in such an exchange makes it more difficult for fathers 
and mothers to part with their boys, particularly as the parting must be for a 
considerable period of time. 

It seems to me that some scheme might be possible whereby such South 
American students could receive a more personal supervision, but, until a 
definite plan is devised, the proposal looking toward a systematic exchange of 
students is sure to meet with considerable objection on the part of our neighbors. 
The young men, themselves, I am convinced, are enthusiastically in favor of 
it, and several wrote or spoke to me about the possibility of studying in the United 
States. The mutual benefit the republics would derive is so great that every effort 
should be made to devise a practical method for carrying out the project. 

The Division of Intercourse and Education which has jurisdiction over the 
exchange of visits of representative men and the exchange of professors and 
students, has also within its scope the formation of national societies for Inter- 
national Conciliation. I found leaders of thought in South America agreed upon 
the beneficent work these societies can accomplish and they were eager that 
national societies should be organized in Latin America. We have been 
fortunate in obtaining the acceptance of well qualified men to act as honorary 
secretaries for National Societies for Conciliation in Brazil, the Argentine and 
Peru and it is expected that a secretary will soon be found for Chile. 

It might be advisable to have the pamphlets of the Society for Inter- 
national Conciliation, which are intended for distribution in the Argentine, Chile 
and Peru printed in Spanish and those for Brazil printed in Portuguese. They 
would thus obtain a much wider circulation and the work in that way become more 
popular than if printed in French or English. 

In every capital which was visited committees were informally got together 
which should be the basis for organization of permanent National Societies of 



18 MR. BACON'S VISIT TO SOUTH AMERICA 

International Law, to be affiliated with the American Institute of International 
Law, founded in 1912 with Mr. Root as Honorary President and Dr. James 
Brown Scott as President. In this work prominent publicists gave their zealous 
support, approving the plan unanimously and devoting to the cause such energy 
and enthusiasm that the Trustees have every reason to look forward to most en- 
couraging results. It was readily appreciated that such a project as this, essen- 
tially intellectual and scientific, must serve as the lasting foundation for all other 
work of bringing nations into closer relations. The rights of peoples, no less 
than the rights of individuals, must rest on law. 

On several occasions spokesmen of societies of lawyers made responses ex- 
pressing unqualified approval of the plan to popularize by means of these national 
organizations the principles of international law, to the end that enlightened public 
opinion should demand the settlement of questions arising between nations upon 
the principles of law rather than by a resort to force. The intercommunication 
of such organizations, through affiliation with the American Institute, will, in 
itself, be a potent factor in bringing about a better understanding of each other 
by the several countries. 

The eminent authorities on international law in the Southern Republics 
have made long and careful studies of their subject with particular reference 
to American affairs and the support they will give to the American Institute 
will be most valuable. The further work of organization should be done with- 
out delay. As Mr. Root in the final paragraph of his letter of instructions 
points out, the results to be achieved are not to be measured in the terms of 
individual life, but in the long life of nations and this is fully realized by our 
friends in Latin America; but advantage should be taken of the present enthu- 
siasm to enlist the services of these distinguished men in the cause which the 
American Institute represents. The Trustees, I believe, will find no activity 
which they could support with more fruitful results or which more strongly 
appeals to the leading men of the South American Republics. 

The proposed Academy of International Law at The Hague aroused a 
lively interest. It was felt that such an Academy, where delegated representa- 
tives of the various governments of the world would meet for the study of 
international law under the instruction of eminent masters, must result in a 
greater uniformity of opinion, a "standardizing", if the phrase be permitted, 
of a science which has heretofore been followed only in a manner productive 
of diverse views. No effort was made to obtain the commitment of any 
government to the proposal; the time was considered unripe for such action. 
My instructions had contemplated nothing more definite than inviting the atten- 
tion of the various Governments to their opportunity to participate in the 
proposed Academy, but I feel quite sure, from the general interest displayed 
in the subject and from the approbation expressed by the Ministers of Foreign 
Affairs, that, when the proposed Academy assumes definite form, the Govern- 
ments of the five South American Republics which I visited will eagerly avail 






FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 19 

themselves of the opportunity to participate in it and that each one will send to it 
one or more duly delegated representatives. 

In conversations with the Minister of Foreign Affairs of each country, 
in accordance with my instructions, the subject was brought up of the early 
appointment of national committees for the purpose of discussing the programme 
of the next Hague Peace Conference and the advantages to be derived from 
the inter-communication of such national committees in America, in order that 
when the next Peace Conference is convoked delegates may go there in a 
better state of preparation and more united in their views of the objects to 
be accomplished than was the case at the Second Peace Conference at The 
Hague. The nature of such private conversations precludes the idea of giv- 
ing to them any public form, but I may say that the necessity for early action 
is appreciated by the various Governments. 

The work of the Division of Economics and History of the Endowment 
formed a part of the principal address delivered in each city and aroused 
much interest. South American historians who can prove of invaluable service in 
furnishing the Division with data regarding the causes and effects of the many 
wars with which the Southern Republics have been afflicted, and with historic 
information regarding the relations of Latin American nations, heard with 
pleasure of the forthcoming visit to South America of Dr. Kinley as the repre- 
sentative of this Division of the Endowment. Dr. Kinley's well-known achieve- 
ments, his friendship for Latin America and the mission upon which he goes will, 
I am confident, assure him a most cordial reception and the valuable assistance of 
South American economists. 

The fact that we were able to remain only a few days in each country 
renders presumptuous any attempt to describe social or political conditions in 
the South American Republics. Whatever expressions of opinion regarding these 
matters may appear refer to well-known characteristics or to facts that become 
evident in even a very brief stay. 

In speaking or in thinking of the Republics of South America we are 
exceedingly apt to fall into the error of regarding them as a whole. The ten 
separate states are as distinct as the separate countries of Europe; the peoples 
constituting them differ in race, habits, and ideals; their governments, though 
retaining the same basic form, are really often quite dissimilar. We shall 
never go very far toward improving our relations with the Latin American 
Republics, either in the matter of intellectual intercourse or of commerce until 
we have made ourselves familiar with the separate nations and by study or 
actual contact learned to make the necessary distinctions between them. A true 
understanding of our neighbors can come only with a knowledge of their sepa- 
rate histories, of their heroes, of the epics of valor and perseverance of each 
Republic and of the races from which they have sprung, native and European. 

The day has gone by when the majority of these countries, laboriously 
building up a governmental structure under tremendous difficulties, were unstable, 



20 MR. BACON'S VISIT TO SOUTH AMERICA 

tottering and likely to fall from one month to another. Now all the more 
important Republics are firmly established and no longer live in the shadow 
of dictatorships or unconstitutional rule. They "have passed", to use the 
words of Mr. Root, "out of the condition of militarism, out of the 
condition of revolution, into the condition of industrialism, into the paths of suc- 
cessful commerce, and are becoming great and powerful nations". With this 
development has come material progress and prosperity attracting the attention 
of the world to South America and assuring its increasing greatness in the 
future. 

Although error springs from regarding the South American nations as 
a whole, certain characteristics are, in greater or less degree, common to all 
of these peoples. They are hospitable, courteous, sensitive, proud and intensely 
patriotic. Whoever goes among them with a disregard of these traits is sure 
to produce a bad impression upon them. We of northern climes are tradi- 
tionally more brusque, and brusqueness is foreign and offensive to these descend- 
ants of the polite races of the Iberian Peninsula. Their sensitiveness causes 
them to resent criticism, although they accept most readily suggestions prompted 
by a sincere friendship; but an attitude of superiority, too often assumed by 
unthinking persons of other nations, can beget only their suspicion, distrust 
and contempt. 

Much has been said of the rivalry existing between the various Republics. 
It is only natural that the rapid progress made by nations lying so close to each 
other should produce a spirit of keen competition in their advance toward the 
common goal of greatness. The same spirit is evident in nearly every country 
in the world. The sentiments which exist between the several nations should be 
respected by all who deal with them, for in that way only can one escape giving 
offense by apparent partiality ; but I incline to the belief that much loose talking 
of persons ignorant of the facts and a good deal of loose writing and loose 
thinking by careless observers have grossly exaggerated the nature of this com- 
petitive spirit. 

Upon the great questions concerning the welfare of the entire continent, 
upon matters relating to the advancement of humanity in general and upon 
the principles of right and progress, the peoples of South America, or, at least, 
those with whom I came in contact, are united. They are believers in high 
ideals and in the work for these ideals they show a solidarity that rises far 
above any feeling of national rivalry. 

In every country which I visited I found sentiments of warmest friendship 
for the United States. The reported occasional public expressions by agitators 
of South American distrust of our purposes and motives are practically negligible 
in comparison with the earnest desire for the friendliest relations between our 
countries which one hears expressed by the real leaders of opinion everywhere. 

It behooves the people of this country, however, to conduct themselves toward 
their Latin-American neighbors with such consideration and fairness that no 



FOR BETTER RELATIONS WITH OUR EATIN AMERICAN NEIGHBORS 21 

cause for suspicion may arise. It has been decreed by our geographical position 
and historical association that our destinies shall not be separate. Such has 
been the view of our own statesmen from the time of Monroe and such was the 
opinion of those early great leaders of South American independence. I believe 
that this opinion is held by the South American leaders of today, not in any 
sense of political alliance and, certainly, in no degree in a manner to involve the 
sovereignty of any state concerned, but as a matter of policy necessitated by our 
proximity to each other, our isolation from other continents and our common 
ideals of liberty. We must all, I think, admit the force of the argument for our 
interdependence, but each American nation should be scrupulously careful in 
respecting the rights and sentiments of the others. 

For our conduct we cannot do better than to remember and follow the 
sentiments of John Quincy Adams expressed in a special message to the House 
of Representatives, explaining his action in appointing delegates to the Con- 
ference held in Panama : 

The first and paramount principle upon which it was deemed wise and 
just to lay the corner-stone of all our future relations with them (our sister 
American republics) was disinterestedness; the next was cordial good will 
to them ; the third was a claim of fair and equal reciprocity. 

These sentiments which served as the "corner-stone of all our future rela- 
tions," are as applicable today as when they were written, more than eighty 
years ago. 



22 MR. BACON'S VISIT TO SOUTH AMERICA 



II. THE JOURNEY 

Among the many changes which are rapidly transforming the relations 
of South America with the rest of the world, none, perhaps, is more apparent 
to, or has a more immediate interest for North America, than the improve- 
ment in the means of communication between the two continents. Neighbors 
of the North and South are no longer forced by considerations of comfort or 
expedition to make their visits to each other by way of Europe. 

Good passenger steamships now ply regularly between the United States 
and the principal ports of the east coast of South America, or between the 
ports of this country and the Isthmus of Panama, where connection may be 
made with the steamships of several lines engaged in the coastwise traffic on 
the Pacific side. 

The journey that only a few years ago was looked upon as accompanied 
by hazards and hardships has become a cruise in pleasant and interesting waters 
where the seas are singularly free from storms. 

These favorable conditions, which are too little known to the general 
public, continue to improve yearly, and with the opening of the Panama Canal, 
the improvement must be even more rapid. 

That our own party embarked from Lisbon for Rio de Janeiro was due to 
the circumstance that some of us had come from the Orient and to the fact 
that a meeting had been arranged in Paris with Dr. James Brown Scott, the 
Secretary of the Endowment. 

The week in Paris was given over to the preparation of material. Only 
by the diligence and devotion of Dr. Scott, generously aided by Dr. Alejandro 
Alvarez of Chile, Secretary-General of the American Institute of International 
Law, was it possible in the short time to prepare articles and information essen- 
tial for the journey. 

Drafts of articles were prepared in English and French descriptive of the 
formation, work and purposes of the Carnegie Endowment and of some of 
the activities and movements in which it is interested, such as the American 
Institute of International Law, the Academy of International Law at The Hague, 
the Third Hague Conference, the Permanent Court of Arbitration at The Hague. 

Through the kindness of Dr. Scott we were supplied with many printed 
pamphlets intended for our own information and for distribution among our 
friends in South America. Among these papers were: 

Institut Americain de Droit International; 

Projet de Statuts, for aid in the formation of national Societies of Inter- 
national Law; 

La Transformation de l'Arbitrage en Sentence Judiciare, par James Brown 
Scott ; 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 23 

Le Mouvement Pacifique, par James Brown Scott; 

Discours d'Ouverture du XX Congres Universel de le Paix, par J. de 
Louter ; 

From Baron d'Estournelles de Constant, who was absent from Paris, we 
received pamphlets descriptive of the work of the Association for International 
Conciliation, together with replicas in bronze of the medal of the Association. 

M. Gabriel Hanotaux, former Minister of Foreign Affairs of France and 
president of the Comite France-Amerique, returned from the country to Paris 
in order to render his invaluable service, and I was his guest at a luncheon 
where he warmly wished me success upon my mission to South America. M. 
Hanotaux further testified his cordial interest by writing articles on the objects 
of my journey, which were published in the Figaro and in the Revue France- 
Amerique. 

From Paris we went to Lisbon, leaving there September 23rd, 19 13, on 
the Royal Mail Packet Steamship Araguaya. Our party consisted of Judge 
Otto Schoenrich, President of the Nicaraguan Mixed Claims Commission, and 
Mrs. Schoenrich, Mr. W. R. Hereford, my wife and daughter and myself. 

Although the voyage to Rio occupies a fortnight, one is never out of sight 
of land for longer than five days consecutively. Frequent stops relieve the 
journey of any possibility of monotony. Our ship put in at Funchal, on the 
picturesque island of Madeira, and at St. Vincent, the chief port of the Cape 
Verde islands, before we reached the coast of Brazil. The first port of call 
in South America was Pernambuco or El Recife, to give it the native name, 
a prosperous commercial city where extensive improvements are under way to 
permit vessels of deeper draft to come into the harbor. Our vessel remained 
at anchor in the roadstead, disembarking passengers by means of a basket 
swung upon a crane, and unloading freight into lighters, tasks rendered diffi- 
cult by the swift tide and heavy swell which are constant at this point. 

We gained our first impression of the activity of modern Brazil at Bahia 
where the members of our party went ashore. In the city, which is the third 
in size in Brazil and a principal mart for sugar and cotton, there were every- 
where evidences of the energy that is transforming these Brazilian capitals into 
modern cities. Streets were torn up; old houses were being demolished; new 
and imposing buildings were taking their places; street-car lines were being 
built or improved. Apparently expense was but little considered in the desire 
for improvement. Bahia is a revelation to travelers from Northern climes who 
are wont to regard the people of the tropics as lacking in energy and too content 
with an easy existence to suffer change. 

In Rio de Janeiro 

Our first view of Rio was such as to stamp it forever on the memories of 
all of us. It is probable that no one can enter that wonderful harbor without 



24 MR. BACON'S VISIT TO SOUTH AMERICA 

receiving impressions which cannot be effaced, but it was our good fortune to 
pass through the narrow entrance just after sunset and to come to anchor in 
the circular bay when the myriad lights of the city were shining, outlining the 
broad arc of the shore and extending from the water's edge to the heights 
behind the city. A full moon revealed the high dark mountains of curious 
shapes which encircled us, with the dome-like rock, the Sugar Loaf, which is 
beloved of every "Fluminense," rising sheer from the deep waters only a few 
hundred yards away. 

Early the next morning we were met on board by Mr. Butler Wright, first 
secretary of the American Embassy, and Senhor Helio Lobo, of the Foreign 
Office, who in the name of the Minister of Foreign Affairs, Dr. Lauro Muller, 
extended an official welcome to us. I had the honor, an hour later, to be received 
by Dr. Lauro Muller, who was most cordial in his expression of interest in 
the Endowment. He had but recently returned from his official visit to the 
United States and spoke feelingly of the reception that had been accorded him 
there and of his desire to lend his support to an undertaking which had in view 
the promotion of friendly relations between our two countries. 

Dr. Muller gave further evidence of his genuine interest in the success of 
my mission by delegating to assist me Senhor de Oliveira Lima, upon whose 
valuable good offices I constantly depended throughout my stay in Rio. It 
would have been difficult if not impossible to have found any one more thoroughly 
qualified than Senhor de Oliveira Lima. His long and distinguished diplomatic 
service in Europe has made him familiar with many of the activities in which 
the Endowment is interested and to this is added a thorough, scientific knowl- 
edge of the relations between Brazil and the United States. His recent valuable 
essay on that subject is familiar to those who receive the pamphlets of the 
Association for International Conciliation. Senhor de Oliveira Lima's many 
friendships in the United States, his well-remembered lectures in this country 
and his command of English and French all helped to fit him peculiarly for 
the invaluable services to the Endowment which he rendered with the utmost 
good-will. 

Calls were made on the day of our arrival upon Senhor Ruy Barbosa, Dr. 
Amaro Cavalcanti and other leaders of public opinion in Brazil. It is impossible 
to exaggerate the sense of encouragement I experienced because of the interest 
manifested by these men who were so thoroughly representative of the states- 
manship of their country. Elsewhere I have spoken of their valuable aid and 
I shall have occasion later to refer to it more particularly. 

During my stay in Rio de Janeiro I was the guest of the American 
Ambassador, Mr. Edwin V. Morgan, who was indefatigable in his efforts to 
afford me opportunities to explain the methods and purposes of the En- 
dowment. 

It was at the American Embassy that the first public address on the objects 
of my visit was made. The Ambassador had invited about a hundred men prom- 



FOR BETTER RELATIONS WITH OUR EATIN AMERICAN NEIGHBORS 25 

inent in the intellectual life of Brazil. Just before this meeting a committee of 
the Historical Institute of Brazil, of which Count de Affonso Celso is the dis- 
tinguished president, and which is one of the oldest learned societies in America, 
welcomed me in the name of the Institute. Senhor de Oliveira Lima, who acted as 
the spokesman of the committee made a brief address in English pledging the 
support of the Institute to the cause of international friendship. 

At the larger meeting where I was introduced by Senhor de Oliveira Lima 
in an address of the most cordial sympathy, it was a very great pleasure to explain 
the purposes of the Trustees to men whose influence was so powerful in the 
affairs of Brazil, for the audience was made up of leaders of the Republic in many 
branches of intellectual endeavor. 

The lively interest which, from the start, was manifested in the Endow- 
ment was shown in the gratifying request of the Minister of Foreign Affairs 
and others who were present, that a more detailed address upon the same theme 
be delivered before a larger audience, and, in spite of the short time of our stay 
in Rio, they were able to arrange for the second day following, at the National 
Library, a meeting which was held under the combined auspices of the Brazilian 
Academy and the Institute of the Order of Advocates. I was introduced by 
Senhor Ruy Barbosa. The prominent place occupied in Brazil by Senhor Ruy 
Barbosa, his conspicuous service at the Second Hague Peace Conference and his 
recognized authority might warrant us in considering him upon this occasion as 
the spokesman of his country. In an address of exceptional brilliance and elo- 
quence, in which he paid high tribute to Mr. Root and Dr. Scott, he expressed 
his appreciation of and deep sympathy with the humanitarian work upon which 
the trustees of the Endowment are engaged. After his sympathetic introduction 
it was a highly esteemed privilege to explain to the distinguished audience which 
filled the large hall of the Public Library, the ideals of the Endowment and the 
practical methods by which it seeks to attain its aims. 

At a tea given for us by the Argentine Minister, Dr. Lucas Ayarragaray, and 
Senora Ayarragaray at the Argentine legation and on another afternoon when we 
had tea with Sefior Alfredo Irarrazabal, the Chilean Minister, at Pao d'Assucar, 
we had the pleasure of meeting the members of the diplomatic corps and many 
residents of Rio. We dined one evening with Sefior and Senora de 
Figueiredo, and there had been a dinner with Mr. Percival Farquhar, a luncheon 
with our Consul General, Mr. Lay, and Mrs. Lay, and luncheons, dinners and 
a dance at the Embassy so that, notwithstanding the shortness of our stay, we 
made many delightful acquaintances and saw not a little of the society of the 
Brazilian capital, carrying away with us the lasting impression of its culture and 
charm. 

On the day before the meeting at the Library, Dr. Lauro Muller gave a 
luncheon for me in the Itamaraty Palace where the Foreign Office is installed, 
a palace of exquisite charm and possessing a remarkable library. There were 
a score of guests at the luncheon, principally Brazilian diplomats and jurists. 



26 MR. BACON'S VISIT TO SOUTH AMERICA 

In the afternoon I had the honor of an audience with the President of 
Brazil, Marshal Hermes da Fonseca. 

The intervals between these occasions, when not occupied in the preparation 
of addresses, had been devoted to talks with Senhores Ruy Barbosa, Amaro 
Cavalcanti, president of the Supreme Court, J. C. de Souza Bandeira, Oliveira 
Lima and others, who with unfailing courtesy gave their time and thought to 
the subject of the formation of a national society of international law and, at the 
instance of the Minister of Foreign Affairs, undertook its organization. 

For the society of conciliation, to be affiliated with the parent society in 
Paris and the society in New York, we were extremely fortunate in obtaining 
the consent of Dr. Helio Lobo, of the Foreign Office, to act as Honorary 
Secretary. His acceptance of this position was immediately telegraphed to the 
Director of the Division of Intercourse and Education, Dr. Butler, in order that 
the organization of the branch society in Rio de Janeiro might be begun without 
delay. 

Papers which had been prepared for distribution and as the basis for 
interviews or articles in newspapers arid reviews and which we had printed in 
Rio in pamphlet form, were as follows : 

(a) In French, a draft of an address on the objects of the Endowment 
and of the mission. 

(b) In Spanish, a draft of an address on the objects of the mission. 

(c) In Spanish, a draft of an address on the American Institute of 
International Law and National Societies of International Law. 

(d) In Spanish, a draft of an address on the Association for Inter- 
national Conciliation. 

(e) In Spanish, a draft of an address on the proposed Academy of 
International Law at The Hague. 

(f) In Spanish, a draft of an address on National Committees for the 
next Hague Conference. 

(g) In Spanish, a draft of an address on the Division of Economics 
and History and the mission of Professor Kinley. 

(h) In Spanish, a draft of an address on the proposed International 
Court of Justice. 

(i) In Spanish, notes on the organization and objects of the Carnegie 
Endowment for International Peace. 

The newspapers of Rio without exception had evinced the greatest interest 
in the objects of my visit, printing daily long articles with pictures and conspicuous 
headlines, all startlingly reminiscent of the enterprise and ingenuity of our news- 
papers at home, with the difference, however, which I am constrained to point 
out in the interest of general information, that the newspapers throughout South 



EOR BETTER RELATIONS WITH OUR EATIN AMERICAN NEIGHBORS 27 

America display a carefulness and accuracy to which we, unfortunately, are not 
always accustomed, and essay to interest their readers in the ideas of men rather 
than in their personalities. Copies of the principal newspaper articles referring 
to our visits in Brazil, the Argentine, Uruguay, Chile and Peru, have been 
collected. 

On the day we left Rio I had the pleasure of meeting again Dr. Rodriguez, 
the distinguished editor of the Jornal do Commercio, who had until that morning 
been absent from the capital. He was most responsive and told me that he in- 
tended to publish in the Commercio articles descriptive of the work of the Endow- 
ment, in which he was much interested. 

Our visit to Rio was limited to four days. It is, of course, unlikely that in 
such a short period opinions worthy of record could be formed of the people or 
of the political or economic conditions of the country, but the first impressions 
of travellers generally have at least the value of sharp definition. 

Of the beauty of the capital there could, of course, be no difference of 
opinion. The wonderful sanitary condition of Rio is most striking. It seems 
impossible that it should once have been a lurking place for deadly fevers. To-day 
the city is scrupulously clean ; the streets are so well cared for that a torn-up 
thoroughfare is a rarity. Pestilential disease has disappeared and the mortality 
rate is one of the lowest in the world. So salubrious is Rio that most of the 
residents now remain in the capital during the hot months of December, January 
and February instead of fleeing to the mountains as they used to do. 

The impression we all got and which I think any one must receive in 
even the briefest visit, was of a city and country and people for whom the future 
is big with promise. The vastness of the territory and its inestimable wealth 
stimulate the imagination. 

The people are energetic and patriotic. They are by nature and by tradition 
courteous and hospitable and give expression freely to the sentiments of friend- 
ship they entertain for the United States. Surely the hospitality shown to our 
party could not have been more cordial or delightful. In leaving Rio we parted 
with regret from those acquaintances whom we had learned, in a few days, to 
regard as friends. 

In Argentina 

The journey by sea from Rio de Janeiro to Buenos Aires occupies four 
days. Very recently the railroad to the South has been opened so that it is 
now possible to go as far as Montevideo overland. Our Ambassador, Mr. Mor- 
gan, had just completed this trip and was enthusiastic over the interesting glimpses 
of Southern Brazil to be had from the car windows, but our plans to go to Buenos 
Aires by sea had been made in advance and could not well be changed. 

We travelled on one of the new ships of the Royal Mail Steam Packet 
Company, the Andes, a large and well-equipped vessel of the type which the 



28 MR. BACON'S VISIT TO SOUTH AMERICA 

growing' trade and passenger traffic between Europe and South America has 
called into service. 

Our ship did not put into the harbor of Montevideo but stopped in the 
open roadstead off the city long enough to permit passengers to disembark. 
Although it was ten o'clock at night when the Andes came to her dock in Buenos 
Aires, we found awaiting us Major Shipton, the Military Attache from the Lega- 
tion, a representative of the Foreign Office, Sefior Barilari, who extended to us an 
official welcome, and several of our Argentine friends. With the members of 
my family I was driven to the house of Mr. John Work Garrett, the 
American Minister, with whom we stopped during our stay in Buenos Aires. 
Even at night, and despite the rain that was falling, the drive from the river 
to the Minister's house revealed unmistakable evidences of the great size and 
importance of the city of whose wonders we had heard so much. The com- 
parison with Paris is not an effort of imagination nor the hyperbole of local 
pride. It suggests itself so naturally that it becomes unavoidable. We were all 
conscious again and again during our stay of the illusion that we were really 
not in the Argentine but in France. 

The day after our arrival was taken up with conversations with Dr. Ernesto 
* Bosch, the Minister of Foreign Affairs, Dr. Luis M. Drago, Dr. E. S. Zeballos 
and other leading Argentinians who very kindly gave me the benefit of 
their advice and lent their active support in furthering the work of the Endow- 
ment. In the afternoon I called on Dr. Bosch, and was presented by him to Dr. 
Victorino de la Plaza, the Vice-president, who has long occupied a prominent place 
in the affairs of the Argentine Nation. Dr. de la Plaza speaks English fluently 
and loses no occasion to express his friendship for the people of the United 
States. Two visits which he made several years ago to this country are still 
fresh in his recollection, and, since then, in his studies, he has so carefully 
followed our progress that he is thoroughly familiar with the development of 
our republic. It is his wish to visit again the United States and the benefit 
that our people would derive from the presence of a statesman so repre- 
sentative of his nation is apparent, but his official duties demand his presence 
in the Argentine for several years to come, so that the prospect of such a visit 
is, unfortunately, remote. 

During the time that we were in Buenos Aires, Dr. Saenz Pena, the dis- 
tinguished President of the Argentine Nation, was detained at his home in 
the country by a regrettable illness, so that I did not have the privilege of 
renewing an acquaintance with him begun in Paris. 

In the afternoon of the day of our arrival, Dr. Ernesto Bosch and Senora 
Bosch, whom we had known in France at the time Dr. Bosch was the Argentine 
Minister there, and who were most kind in their hospitality to us throughout 
our stay in the Argentine, gave a reception for Mrs. Bacon and myself, where 
we had the pleasure of meeting many who were prominent in the diplomatic 
and social life of the capital. 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 29 

In the evening I dined with Dr. E. S. Zeballos at his house. He had invited 
a most distinguished company of public men, diplomatists, jurists and educators, 
and they expressed a very lively interest in the work and purposes of the Endow- 
ment. There was a short speech of welcome by Dr. Zeballos to which I responded, 
referring to the declarations of Mr. Root during his memorable visit, as a 
doctrine of sympathy and understanding, of kindly consideration and honorable 
obligation. Mr. Root's visit in 1906 and his public utterances remain vividly 
impressed upon the minds of the leaders in the Argentine in no less degree than 
in Brazil and I was to find as I continued my journey that there existed every- 
where I went the same warm sympathy for him and the same confident 
reliance upon the sincerity and potency of his friendship for our sister Republics 
to the South. 

We had luncheon the next day at the German legation with our old friends, 
Baron and Baroness von dem Bussche. 

Before leaving Rio I had been invited to address the Faculty of Law of 
the University of Buenos Aires, and the meeting was held that afternoon 
in one of the great halls of the University. There Dr. Drago pre- 
sented me to an audience of several hundred men and women who, in spite of the 
somewhat technical nature of the subject, paid the closest attention. The address 
was substantially a combination of the two I had delivered in Rio de Janeiro, for 
it was quickly appreciated that the public preferred to hear a general descrip- 
tion of the work and purposes of the Endowment rather than an address confined 
to any one of the activities which it encourages or supports. 

In the evening at the chancellery of the American Legation, there was an 
informal gathering of alumni of universities in the United States, South Ameri- 
cans and North Americans, who were members of the University Club of Buenos 
Aires, of which our Minister, Mr. Garrett, was president. Toasts were made and 
responded to, expressive of greeting and good-will, as informal as the general 
character of the evening, of which no record was kept except in the memories of 
those who in this land so far south of the Equator, had foregathered fra- 
ternally, each drawn by the tie of an alma mater in a republic so far to the North. 
It gave one a pleasant sensation of optimism and security in the future friendship 
of our countries. One is inclined to underestimate the great good done by such 
social organizations as the University Club of Buenos Aires. They are really 
important factors in the relationship of countries and it is to be hoped when the 
proposed exchanges of professors and students are put into effect under the 
auspices of the Endowment that an effort will be made to organize similar soci- 
eties wherever it may be practicable. 

There will always remain in my memory the impression of visits which we 
made the next day to several of the public schools. While the ladies of our 
party, with Senora Rodriguez Tarreta, the head of the admirably organized 
charities of Buenos Aires, one of the most efficient organizations of its kind' in 
the world, visited hospitals and charitable institutions, obtaining a glimpse of 



30 MR. BACON'S VISIT TO SOUTH AMERICA 

the generosity and devotion of the ladies of Buenos Aires, Mr. Garrett and I 
visited the public schools with Dr. Carlos Ibarguren, Minister of Public Instruc- 
tion, and Dr. Pedro Arata, President of the National Council of Education. 

The public schools of Buenos Aires are models of which any country might 
be proud. They have aroused the admiration of such distinguished observers 
as James Bryce and M. Clemenceau. It has been stated that the Argentine 
spends more money upon the education of her children than any other country 
in the world with the single exception of Australia. One can easily believe that 
this is true if her schools generally have the excellence of those that we had the 
privilege of seeing. It makes a visitor from the United States proud to be 
reminded of the fact that the great Sarmiento, the founder of the Argentine's 
educational system, was a close personal friend of Horace Mann, and received 
his inspiration largely from that friendship. 

Our limited time in Buenos Aires made anything like a thorough study of the 
educational condition of the Republic out of the question and any observations 
that I might make would be, necessarily, not much more than the reflected opinions 
of other travellers who have expressed them better, and of native historians who 
have dealt with the subject fully and authoritatively, but we saw enough to fill us 
with admiration. We found that English was generally taught and it left 
an indelible impression upon us to hear the national anthem of the United 
States sung in English by the pupils of their schools and to be greeted in our 
native tongue faultlessly by the girls and boys whom the others had selected to 
welcome us. Nothing, I think, could have touched us more deeply. 

Sefior Ibarguren was our host later at the imposing Jockey Club at a 
luncheon where we met many men prominent in the affairs of the Republic. In 
the afternoon we visited the Hall of Congress, a marble building just completed 
and reminiscent, in its architectural beauty, of our own capitol at Washington. 

To Sefior Joaquin Anchorena, the Intendente of Buenos Aires, we are 
indebted for many kind attentions, among them a tour of the city the next 
morning, when we saw some of the magnificent new avenues and parks of the 
capital. We inspected the extensive underground railway which was just 
being completed and also went with Sefior Anchorena, who is largely respon- 
sible for many of these great public works, to the model municipal farm, and 
there we had our first drink of mate, or Paraguayan tea, which, though scarcely 
known in Europe or in the United States, is a most important article of con- 
sumption in some of the Southern Republics, Argentina alone importing 43,161 
tons of mate in 1909 from Brazil. 

We had luncheon with the Vice-President, Dr. de la Plaza, at his house 
where he had gathered a score of public men and here, as upon other 
occasions, we found an eager interest in the work of the Endowment. Dr. 
de la Plaza made a short speech in which he expressed officially this interest and 
support, referring particularly to Mr. Root and employing the phrase in Eng- 
lish which I had used at Dr. Zeballos' dinner in speaking of Root's doctrine. 



EOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 31 

The Vice-President's remarks were made without notes and, unfortunately, no 
verbatim record of them was obtainable. 

The afternoon was taken up with many informal visits and in the evening 
we went to the house of Dr. Ezequiel Ramos Mejia, a former member of the 
Cabinet and one of the Argentine's foremost men, who, with his charm- 
ing wife, was giving a reception for us. 

We had luncheon the next day at the races with Senor Jorge Mitre, owner and * 
director of La Nation, one of the large, active, important Argentine newspapers 
which are the marvels of the journalistic world. The day was an important 
one on the calendar of sport and the Vice-President and nearly all other offi- 
cials of the government attended the races. The spectacle reminded one 
of the great days at Longchamps. Later, with Dr. Bermejo, Dr. 
Ibarguren and Dr. Aldao, I went to a Children's Congress, where hun- 
dreds of splendidly drilled school children engaged in gymnastic exercises. In 
the evening we took the steamer Bleo for Montevideo, Senor Barilari of the 
Foreign Office, Mr. Garrett, Major Shipton, Lieutenant Whitlock and other 
friends coming to the dock to bid us good-bye. 

Enough has been written in this narrative account of our visit to Buenos 
Aires to indicate the extreme cordiality of our reception. The impression received 
in Brazil of the friendliness of the people of South America toward the United 
States was confirmed and strengthened in the Argentine. Despite the unofficial 
purpose and private character of our mission the newspapers devoted daily great 
space to describing all that we did, reproducing in full the addresses delivered 
and publishing long articles descriptive of the objects of the Endowment. The 
rather scientific nature of these articles, the lack of anything spectacular in the 
subject itself, induces the belief that the newspapers merely reflected the friendly 
interest of the public in the work the Trustees are seeking to accomplish. 

This interest was notable among those with whom I had the opportunity to 
converse. I found a ready cooperation among the leading citizens and a strong 
committee was informally authorized by the Minister of Foreign Affairs for the 
purpose of organizing a national society of international law. This group of men 
included those whose advice had so greatly encouraged me: Dr. Antonio 
Bermejo, President of the Supreme Court, Dr. Eduardo Bidau, of the Faculty of 
Law of the University of Buenos Aires, Dr. Eufemio Uballes, Rector of the 
University of Buenos Aires, Dr. Luis M. Drago, Dr. E. S. Zeballos. 

The organization of a national society for international conciliation was dis- 
cussed and the men with whom I talked were thoroughly in accord with its pur- 
poses. Dr. Benjamin Garcia Victorica accepted the position of Honorary Secre- 
tary and was at once placed in communication with Dr. Butler. The work of or- 
ganization will go on rapidly under Dr. Garcia Victorica's direction and the parent 
association of International Conciliation in Paris and the Association in New York 
will, I believe, find a valuable adjunct in the Society of Buenos Aires. 



32 MR. BACON'S VISIT TO SOUTH AMERICA 

So much has been said of the truly marvelous development of the Argentine 
Republic, that my own testimony can add but little to our realization in the United 
States of Argentina's rapid progress and the important place it occupies among 
nations. Its recent history affords many striking parallels to our own and not a 
few of the problems which arise are the same as those with which we have had to 
deal or with which we are even now dealing. The immense natural resources of 
Argentina, which has an area of more than a million square miles or about one- 
third that of the United States proper, the virility and industry of its people and 
the learning, ability and patriotism of its public men leave no doubt of the future 
greatness of the Republic. 

Signs point unmistakably to the increasing commerce between the Argentine 
and the United States and, what is more important still, to intimate intellectual 
relations. It is essential that a better understanding of each other by our two 
countries be brought about, and it is a happy augury for the future that, in seek- 
ing to do this, the Endowment will have its plans approved and furthered by 
those eminent Argentine leaders who are so largely responsible for the present 
advancement of their country. 

In Uruguay 

The Rio de la Plata at Buenos Aires is really an arm of the sea, so that 
Montevideo, although "just across the river", from the Argentine city is dis- 
tant no miles and the journey between the two capitals occupies about ten 
hours. 

Awaiting the arrival of our steamer, we found Sefior Fermin Carlos de 
Yerequi, of the Foreign Office of Uruguay, who welcomed us officially, and 
our Minister, Mr. Nicolay Grevstad, who, during the two days we remained in 
Uruguay, was most attentive and helpful. A committee of reception had been 
formed consisting of Dr. Pablo de Maria, President of the Supreme Court, 
Dr. Claudio Williman, Rector of the University of Montevideo and former 
President of Uruguay, Dr. Ildefonso Garcia Lagos, President of the Uruguayan 
Central Committee of the American Peace Association, Dr. Julio Bastos, Presi- 
dent of the Ateneo and Dr. Carlos M. Prando, and through their good offices 
and Mr. Grevstad's, I met the men of Uruguay whom I much desired to meet. 

Montevideo is a much smaller city than Buenos Aires, about one-third or 
one-fourth the size, but it possesses all the dignity of a large and important 
capital, together with the individual charm that smaller cities often retain. 
There are wide, well-paved, well-lighted avenues, lined with attractive buildings 
and many interesting shops. The city is well equipped with modern electric 
street railways. Public squares and parks of exceeding beauty add to the charm 
of the place, which attracts many from Buenos Aires during the hot months. 
Close by are delightful resorts on the sea which are within easy access of the 
city and afford pleasant places for outing for the Montevideans. To the west 



FOR BETTER RELATIONS WITH OUR EATIN AMERICAN NEIGHBORS 33 

is the famous Cerro, a large cone-like hill, beloved by the people of the city, 
who often go there for the fine view to be obtained from its summit of the 
river and harbor with its moles and docks. The harbor, already an excellent 
one, though too small for the commerce of the port, is being extensively improved. 

Our first morning was taken up with a visit to the Minister of Foreign 
Affairs, Senor Emilio Barbaroux, who presented me to several eminent educators 
and publicists, with whom I discussed the objects of my visit, asking for their 
cooperation, which they heartily gave. 

We went to a luncheon given by the American Minister, at which there were 
about twenty distinguished residents of Montevideo. Mr. Grevstad delivered in 
Spanish a short address of welcome, to which I responded. 

The afternoon was spent at the Foreign Office with Senor Barbaroux and 
several gentlemen he had invited to meet me there. We took up the question of 
a committee to organize a National Society of international law. All the gentle- 
men devoted themselves most earnestly to the discussion and agreed to serve 
on the committee which was then informally constituted and included: 
Senor Emilio Barbaroux, Minister of Foreign Affairs ; Dr. Pablo de 
Maria, President of the Supreme Court; Dr. Ildefonso Garcia Lagos, Presi- 
dent of the Uruguayan Central Committee of the International Peace Asso- 
ciation ; Dr. Juan Zorilla de San Martin ; Dr. Jose Pedro Varela ; Dr. Jose 
Cremonessi and Dr. Daniel Garcia Acevedo. This group, it was intended, should 
form the basis for the organization of a permanent society. 

In the evening before a large and extremely sympathetic audience at the 
Ateneo, Dr. Juan Zorilla de San Martin, an orator of international reputation, 
delivered a brilliant address expressing the approval of Uruguayans of the work 
of the Carnegie Endowment, and entering more particularly into a laudatory 
description of the American Institute of International Law. It is a source of 
deep regret that no exact record of Senor San Martin's eloquent speech exists, 
as he spoke without notes and no stenographer was present, but in a letter 
just received, Mr. Grevstad, I am happy to say, gives the assurance that 
Senor San Martin, at my urgent request, will endeavor to write his valuable 
essay, reproducing the speech as nearly as his memory of it will permit. Fol- 
lowing Senor San Martin's sympathetic introduction, I spoke for some time, 
explaining in detail the methods and purposes of the Endowment as I had 
explained them in Buenos Aires. 

Nearly all of the next morning was spent at the Ministry of Foreign Affairs. 
Senor Barbaroux showed unflagging interest in the numerous topics mentioned 
in my letter of instructions and I cannot sufficiently express my deep gratitude to 
him. Our time in Montevideo was limited to a few hours. Unfortunately it had 
to be so. We should have greatly wished to stay longer, and the fact that we 
were able to accomplish what we did was due altogether to the aid of Senor 
Barbaroux and his friends and of Mr. Grevstad and the members of the Com- 
mittee of Reception. 



34 MR. BACON'S VISIT TO SOUTH AMERICA 

In the afternoon I had the honor of being presented to His Excellency, the 
President, Senor Batlle y Ordonez, and was impressed in the necessarily, brief 
audience by his forcefulness, the familiarity he showed with the subjects I had 
come to discuss and his friendliness toward the objects of my visit. 

President Batlle lives a short distance from the capital and we drove from 
his beautiful estate back to the city and to the Prado, Montevideo's magnificent 
park, where a tea for us was in progress under the hospitable auspices of members 
of the American and English colony in Montevideo. From the tea I went to the 
house of Dr. Udefonso Garcia Lagos and shall always remember the charming 
half-hour's talk I had with him. Despite age and the infirmity of blindness, Dr. 
Garcia Lagos who, in 1889, was a delegate to the first Pan-American Conference 
held in Washington, has continued to occupy himself with the broad, humanitarian 
international work in which he has for so long held a position of leadership. 
He had not stopped to think of personal convenience when Senor Barbaroux had 
invited him to meet with us at the Foreign Office, but had left his home to be 
present, and had given us the benefit of his experience and valuable advice. 

That night there was a banquet given for us in the Uruguay Club by the 
Minister of Foreign Affairs where we met men and women who were leaders 
in the life of the capital. We heard many expressions of cordial sympathy 
with the objects of our visit and these were voiced officially in a short speech 
of the Minister of Foreign Affairs. 

In order that we might have the opportunity to meet in this delightful 
way those whose acquaintance we so greatly desired to make, the steamship 
that was to take us back to Buenos Aires was delayed in starting for an hour 
or more and it was approaching midnight before we drove away from the 
Uruguay Club. The American Minister, members of the Reception Committee 
and Senor de Yerequi, of the Foreign Office, accompanied us to the steamer 
to take leave of us and to add by this last attention to the already deep sense 
of gratitude our hospitable welcome had inspired. 

It seems to us little short of remarkable that in the two brief hurried days 
we were able to remain in Uruguay, we should have received impressions 
which remain fixed so clearly in our memories, but we can never forget our 
friendly reception nor can we adequately express our appreciation of the cordiality 
and hospitality that marked our visit to Montevideo. It would have been 
impossible for our hosts to do more than they did to testify to their 
interest. 

Uruguay occupies such an honorable and important place among the nations 
of America that it is particularly gratifying to know that the Endowment has 
the approbation and support of its leading citizens in private and public life. 
Some one has well described Montevideo as the American Hague because of 
the many international Congresses and Conferences which are held there. A 
large number of these gatherings have in view the improvement of the present 
conditions of humanity. All that tends to uplift mankind, all that makes for 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 35 

progress in the march of civilization, finds a cordial support in progressive 
Uruguay. More than one historian has pointed out that the majority of leaders 
in the world's advance have come from smaller nations. Uruguay, although the 
smallest in area of the South American republics, occupies a place of honor and 
consequence not dependent upon its size but upon the intelligence, advance- 
ment and patriotism of its people. Although the smallest of the nations of the 
Southern continent, it is as large as all New England with the state of New 
Jersey added and, as has been said, has not an acre of unfertile soil throughout 
its length and breadth. Commercially, materially, it is growing rapidly, sharing 
in the great prosperity and progress that has come in recent years to these 
republics of the South. There is every reason to believe, and it is a cause for 
congratulation, that the work of cooperation with the Endowment already begun 
in Uruguay will be continued with most gratifying results. 

In Chile 

There was another busy day for us in Buenos Aires upon our return, a day 
in which every moment was occupied. There were interviews with the Minister 
of Foreign Affairs, Sefior Bosch, and others who had manifested such a cordial 
interest in the objects of the Endowment, a visit under the personal guidance 
of Dr. Adolfo Mugica, Minister of Agriculture, to the Agricultural Museum, 
where we saw striking examples of some of those things which have made the 
Argentine such a great nation and, in the evening, there was a dinner at the 
Legation. 

Early on the following morning we departed on the journey to the other 
side of the Continent, for which purpose the President had placed his private 
railway carriage at our disposal and the government had delegated Sefior 
Cortazar of the Railway Service to accompany us. There were many of our 
friends at the station to say good-bye : Mr. Garrett, Major Shipton, the Military 
Attache, Senor and Senora Bosch, Sefior and Senora Green, Dr. Joaquin de 
Anchorena, Dr. Larrain, the Chilean Minister, Sefior Barilari, of the Foreign 
Office, and many others who had done so much to make our stay in Buenos Aires 
a pleasure that will forever remain in our memories. 

During all that day we travelled in a straight line to the west through a 
prairie land of wonderful richness, over which roamed great herds of cattle and 
horses. Seemingly boundless seas of wheat and alfalfa rolled away from us as far 
as the eye could reach. No one who has taken that journey across the pampas 
needs any further explanation of the prosperity that has so rapidly advanced the 
Argentine Republic to a leading place among the nations of the world. 

We arrived at Mendoza in the foot-hills of the Andes soon after daybreak, 
and there changed to a special train on the narrow gauge road that climbs amid 
impressive mountain scenery to a height of nearly 10,500 feet. During the ascent 
we caught a glimpse of Aconcagua, the highest mountain in the western hemi- 



36 MR. BACON'S VISIT TO SOUTH AMERICA 

sphere. Near the summit of the divide a tunnel has been cut through to the 
western slope, doing away with the mule-back journey of a few years ago. A 
good deal has been written of the hardships of this railway trip across the Andes, 
but none of our party experienced any discomfort. The descent on the Chilean 
side offers panoramas differing from those seen on the eastern side of the 
Cordilleras. The mountains are less barren and for that reason, perhaps, seem 
less rugged, although the descent was more precipitous than the ascent had been. 
The gorges are narrower and seem deeper, and as the train winds its way 
downward there are entrancing views, covering a wide range, and showing a 
country of great fertility. 

A change was made at Los Andes to the broad gauge again and we con- 
tinued our journey in a special car provided by the Chilean government. Mr. 
Harvey, our Charge d' Affaires in Chile, joined the party soon afterward. We 
arrived in Santiago about half-past ten o'clock in the evening, but in spite of the 
lateness of the hour, a large delegation, including representatives of the Govern- 
ment and members of the Committee of Reception, was at the station to wel- 
come us. After a pleasant moment of greeting in the train and on the station 
platform, we were driven to our hotel in state carriages which the President of 
the Republic had placed at our disposal. 

The arrangements for our reception in Santiago had been placed in the 
hands of the following committee : Dr. Domingo Amunategui, Rector of the 
University of Chile, Senator Joaquin Walker Martinez, Director of the Caja 
Hipotecaria, Dr. Luis Barros Borgono, Dr. Antonio Huneeus, former Minister 
of Foreign Affairs, Sehor Jorge Astaburuaga and Sehor Julio Philippi. 

The members of this committee were most attentive during the four days we 
remained in Santiago. They lost no opportunity to show us the many places of 
interest in their beautiful and picturesque city. Through them and through 
the efforts of the American Charge d' Affaires, Air. Harvey, I met leading citizens 
of Chile and talked over with them the work the Endowment wished to 
accomplish. 

The first morning was devoted to a drive about the city in the company 
of members of the committee. Santiago is entirely distinctive in character. It 
possesses all the charm of an old Spanish city but its progressive, enlightened 
citizens have added to this charm of antiquity the comforts and improvements 
of modern capitals. Its situation is superb. High mountains rise close at hand 
enclosing the city in a frame of imposing proportions and exquisite coloring. In 
the clear atmosphere the mountains seem very near, but they give only the sense 
of protection without any oppressive feeling of restriction, of being shut in, such 
as one so often experiences in cities built near high mountains. The visitor, 
perhaps unconsciously, keeps ever in mind that longitudinal valley of incom- 
parable richness and fertility in which Santiago lies, and which makes of this 
part of Chile a region that experienced travellers have regarded as one of the 
earth's most attractive garden spots. 



EOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 37 

It was an altogether charming and impressive glimpse that we got of the 
Chilean capital on that perfect October morning with the comfortable sun 
shining from a deep blue sky and a gentle but invigorating breeze blowing from 
the mountains. Such days, I am told, are a common experience in Santiago, where 
rarely does it become uncomfortably hot or uncomfortably cold. From the 
historic Cerro Santa Lucia we saw the city in panorama, a metropolis of half 
a million inhabitants with wide, straight avenues, large public buildings of pleasing 
architecture and statues and monuments worthy of the capital of a great and 
powerful nation. 

In the afternoon I called upon the Minister of Foreign Affairs, Senor 
Enrique Villegas, and through his courtesy I had the honor of being presented 
to the President of Chile, Senor Barros Luco, who expressed a most sympathetic 
interest in the objects of my visit. 

From the audience with the President we went directly to the University 
of Chile where, before a large gathering of representative men and women and 
many students of the University, I received a diploma, conferring honorary mem- 
bership of the Faculty of Law and Political Science, which is their form of con- 
ferring an honorary degree. The Rector of the University, Dr. Domingo 
Amunategui, made a brief speech of introduction, which was followed by an 
address of welcome delivered by Dr. Luis Barros Borgono, Dean of the Faculty 
of Filosofia y Humanidades. In my reply, I followed closely the lines of the 
address delivered in Buenos Aires and Montevideo descriptive of the work and 
purposes of the Endowment and of the objects of my visit. 

This was the first opportunity there had been on the west coast of South 
America of introducing to the public the work of the Endowment and 
asking cooperation, and I was anxious to compare the interest of the people with 
that which had been shown in the cities of the east coast. It is not possible for 
me to convey the gratification, encouragement and inspiration the manifestations 
of enthusiasm gave me, for it was at once evident that in Chile as in Argentina, 
Uruguay and Brazil, the Trustees would find zealous co-workers. I can never for- 
get the scene as we left the hall with the students cheering as we passed and shout- 
ing their approval. Students at universities are pretty much alike the world over ; 
if they disapprove, no forcing of their good opinion is possible; if they approve, 
there is no restraining of their expression. I was glad that the work of the 
Endowment had stirred their imagination and won their sympathy. It will mean 
much to the cause in the future, for tomorrow these young men will be the 
leaders to whom the Endowment must look for support. 

The next morning there was another delightful ride about the city with 
Senor Huneeus and other members of the committee, followed by a luncheon 
at the Legation, and afterward we went to the races where the official and social 
life of the capital had gathered. There can be few more beautiful spots in the 
world than the grassy plain of the Santiago race course with the mountains 
rising just beyond. At a reception later at the house of Dr. Luis Barros Borgono, 



38 MR. BACON'S VISIT TO SOUTH AMERICA 

which the President attended, we had another delightful opportunity of getting to 
know better those whose cordial hospitality had already made us feel so welcome. 

In the evening I went to a most interesting dinner given by the Minister of 
the Treasury, Sefior Alessandri, at the Club de la Union. 

To Sefior and Sefiora Huneeus, whose hospitality and indefatigable atten- 
tions added so much to our enjoyment, and to Sefior Urrutia and his charming 
wife, whom we had known in Washington, to Sefior Astaburuaga and others 
we owe a debt which we can never repay. Largely through them we met, during 
our short stay in Santiago, many members of the old families, who give to the 
society of the Chilean capital the cosmopolitan culture for which it is noted 
throughout the world. Nothing could have given us more pleasure than to 
meet their friends. At a dinner and reception at the house of Sefiora Edwards 
and her son, Sefior Augustin Edwards, Chilean Minister to the court of St. 
James, at an afternoon reception given for us by Sefiora Montt, widow of a 
distinguished president of Chile, and at the houses of other acquaintances, we 
were able to appreciate how thoroughly delightful life must be in this favored 
part of America, where, in beautiful surroundings and with climatic conditions 
as nearly perfect, perhaps, as can be found anywhere, a civilization exists which 
combines old Castilian charm with the progress and virility of the new world. 
Nor should I omit to mention among these very agreeable memories, how par- 
ticularly pleased I was to meet Don Julio Foster, who, for most of his ninety 
years, has been a prominent figure in the life of Santiago. 

The last two days of our stay in Santiago were largely given over to many 
conversations with Sefior Huneeus, Sefior Astaburuaga and other members of the 
committee and Sefior Philippi, Sefior Ricardo Montaner Bello, Dr. Amunategui 
and others representative of the University, all of whom had so greatly aided me 
with their advice. 

The formation of a committee was undertaken for the organization of a 
national society of international law. We were particularly fortunate in having 
the cooperation of prominent Chileans whose support left no room for doubt 
of the success of the undertaking: Sefior Antonio Huneeus, former Minister 
of Foreign Affairs ; Dr. Luis Barros Borgofio, Dean of the Law Faculty of the 
University of Chile ; Dr. Amunategui Solar, Rector of the University of Chile ; 
Sefior Ricardo Montaner Bello. Since my return to the United States I have 
had the pleasure of receiving an evidence of the activity of these eminent gentle- 
men in the form of a circular announcing the permanent organization of the 
national society. 

All these experiences had been extremely gratifying, for those with whom 
I talked seized every occasion to express their entire approval of the Endowment's 
program and had demonstrated in a practical way their willingness to work 
together with the Trustees. 

In the meantime the officials of the government had continued their kind 
attentions. There had been an interesting visit to the Military School, where 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 39 

I had luncheon with the Minister of War, Sefior Jorge Matte Gomaz, and met 
the chiefs of the army who are largely responsible for the efficiency of the 
Chilean soldiers, which has called forth the praise of authorities from many 
countries. We were fortunate in seeing a very fine drill. On the evening 
following we had the pleasure of attending a large dinner given by the Minister 
of Foreign Affairs, Senor Enrique Villegas, and followed by a ball at the 
Club Hipico. 

We left Santiago for Valparaiso early in the morning on October 29th, in a 
special car which the Government had placed at our disposal. Mr. Harvey, Sefior 
Huneeus, Senor Lynch, representing the Foreign Office, and others were at the 
station to bid us farewell. 

It had been our wish to remain long enough in Valparaiso to gain acquaint- 
ance with its leading citizens, but the limited time we could spend on the entire 
South American trip made this impossible. I did, however, find time to call 
upon the Municipal Intendente who had kindly sent his launch to take us out 
to the steamer. 

We were met at the station by Captain Johnson, the American Naval 
Attache, and Consul General Winslow, and had luncheon with them at the 
English Club, afterward driving to the heights overlooking the city. It is a tribute 
to the people of Valparaiso and to the Chilean character that their principal 
seaport which was almost destroyed by an earthquake in 1906 should have been 
built up again so quickly and better and more beautiful than it was before. 

We left Valparaiso at four o'clock in the afternoon on the steamship Oronsa 
of the Pacific Steam Navigation Company, quite loth to depart from shores that 
had been so hospitable to us. 

The Republic of Chile is keeping pace with the progress made by the great 
Republics of the east coast of South America. She has contended against dif- 
ficulties considerably greater than those which have confronted her eastern sisters, 
for their closer proximity to Europe brought to them an earlier solution of the 
great South American problem of rail-and-water communication upon which the 
progress of every nation must largely depend. Traffic by sea between Chile and 
the countries of Europe has necessitated the long and arduous passage through 
the Magellan Straits or the difficult voyage around the Horn. Railway com- 
munication with the outside world has been confined until recently to that obtained 
by the passage of the Andes on mule-back, a journey impossible during several 
months in the year. The tunnel joining the Chilean and Argentine ends of the 
Trans-Andean railway, uniting a great trans-continental system of transportation, 
solved the land problem, and other trans-Andean railways are in contemplation 
or in actual course of construction, which will greatly increase these facilities. 
The problem of communication by water will be solved by the Panama Canal. 

Even a brief visit to Chile is sufficient to impress one with the belief that 
the present prosperity it enjoys must rapidly increase. The natural conditions 
point convincingly to such a conclusion and the Chileans themselves are such a 



40 MR. BACON'S VISIT TO SOUTH AMERICA 

virile, determined people, united in their love for their beautiful country and the 
desire to promote its development, that the future of Chile seems very bright. 
Surely we of the United States have every reason to hope that it will be so. 

Ever since the birth of the Republic the welcome extended to foreigners 
has been in keeping with the hospitality for which the Spanish race is famed 
and this has resulted in a broad, cosmopolitan spirit, but, though the Chileans 
make the stranger welcome, no more sensitive or prouder, people exists. They 
are not arrogant, but they have a proper patriotic pride in the achievements of 
their illustrious men and they are correspondingly quick to resent any action or 
attitude which is not in keeping with their high sense of personal and national 
dignity. 

In the more intimate relations between the people of Chile and the people 
of this country which are sure to be brought about by the opening of the Panama 
Canal, it is well for us to remember these things, in order that we may not 
through thoughtlessness or ignorance give offense, but try in every way to 
cement the present bonds of friendship which bind us to our sister republic. 

In Peru 

From Valparaiso to Callao and from Callao on northward until the Guaya- 
quil River is reached, the steamer is never out of sight of land. The course 
follows the straight line of the shore, generally hugging it so closely that the 
surf can be seen breaking at the foot of the arid mountains. The higher sum- 
mits to the eastward have robbed the winds of their moisture by the time they 
reach the coast, so that from the deck of the steamer the traveller looks upon a 
region as bleak and often as weirdly fantastic in contour as the landscapes Dore 
painted to illustrate Dante's verse. League upon league of land, destitute of all 
vegetation, is passed, but, despite its barrenness, the prospect is made interesting 
by the vividness of the coloring. In the changing lights of morning, noon and 
evening, one may see displayed upon the peaks and in the valleys all the colors of 
the spectrum, from red to violet, with the striking exception of green, which lack 
the tossing sea in the foreground supplies. For two thousand miles or more 
the ship sails under the lee of these hot, desert mountains which need only the 
touch of water to convert them into hanging gardens of tropical luxuriance. 

We were told that storms along the coast were rare; almost unknown, the 
captain of our steamship informed us ; so that the ships may with impunity hug 
the shore, for deep water is to be found within a few yards of the narrow stretch 
of beach which generally runs like a yellow ribbon at the foot of the mountains. 
A heavy swell is constant and at times causes the ship to roll uncomfortably, 
particularly when the vessel is at anchor, but, for the most part, the voyage 
along the western coast of South America resembles a yachting cruise more than 
the ocean trip to which Atlantic travellers are accustomed. The Humboldt 
current, sweeping up from the Antarctic, keeps the journey toward the Equator 
from becoming uncomfortably hot. 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 41 

Sea-birds, flying-fishes and the larger inhabitants of the ocean, porpoises and 
whales, are companions of the voyage in sufficient numbers to divert the attention 
from the seemingly endless panorama of reddish mountain land. At times thou- 
sands of birds are to be seen in the air at once and occasionally a guano island is 
passed, literally covered with birds. 

The Oronsa called at six ports between Valparaiso and Callao, anchoring in 
the open roadstead, for harbors are practically non-existent, while cargo or 
passengers were unloaded or taken on. 

Coquimbo was our first stopping place, a small but important shipping port 
with good anchorage, a day's journey from Valparaiso. The next day we put 
in at Antofagasta which lies on the Tropic of Capricorn. Is is the port of entry 
for Bolivia. To all of us it had been a source of deep regret that we did not 
have time to go to La Paz, but the distance of the Bolivian capital from the 
seaboard and the inability to arrange satisfactory steamship connection ren- 
dered a visit to La Paz impossible. From Antofagasta, a telegram was sent 
to our Minister in Bolivia, expressing the regret we felt in being at the port of 
La Paz, but unable to undertake the two days' journey over the mountains to 
the inland Republic, whose bright future must be the hope and expectation of 
all who are familiar with the difficulties she has already successfully overcome 
in her rapid recent development. 

At Antofagasta a representative of the Intendente came aboard to give us 
an official welcome, and we received a visit from the ' United States Consular 
Agent. Our ship stopped also at Iquique, Arica, Arequipa and Mollendo, and we 
sent from Arequipa a message of greeting to those who have charge of Harvard 
University's observatory on El Misti. 

The sun was setting when we arrived at Callao on November 3rd. It is an 
excellent harbor, by far the largest and best we had seen on the west coast, but 
as yet the ships do not come alongside the piers. A launch had been sent out 
for our party and we started ashore in it before the Oronsa had reached her 
regular anchorage. In the confusion incident upon this we failed to meet Mr. 
Pennoyer, our Secretary of Legation, Sefior German Cisneros y Raygada, of 
the Foreign Office, who had come out to welcome us officially, and others 
who did not come aboard before we left; but we had the pleasure of seeing 
them soon after at the hotel in Lima and many other times subsequently, for 
they were untiring in their constant and valuable assistance during our stay 
in Peru. Though we missed Sefior Cisneros and Mr. Pennoyer at the steam- 
ship, we had the pleasure of meeting Dr. Juan Bautista de Lavalle and other 
members of a committee who greeted us in the name of the Faculty of Law 
of the University of San Marcos. Great indeed, too, was our delight to meet 
again Sefior Felipe Pardo, whom I had known in Washington when he was the 
Peruvian Minister there. 

Lima is seven miles from Callao and we went there in one of the electric 
cars which run at frequent intervals between the port and the capital. The car 



42 MR. BACON'S VISIT TO SOUTH AMERICA 

had been placed at our disposal, another mark of attention from the Government, 
whose friendliness was constantly manifested. The President, Senor -Billing- 
hurst, placed his own automobile under my orders during our entire stay in Lima. 

It was dark when we arrived in the city, but our glimpses as we drove to the 
Hotel Maury from the station produced a most agreeable impression and this was 
subsequently confirmed and strengthened. The antiquity of Lima, the individual 
and picturesque character which it has so charmingly preserved, the romantic and 
brilliant part it has played in American history, all serve to attract the visitor, 
but, in addition, there are striking evidences of the modern spirit of progress 
which Lima shares with other South American capitals, and which render a 
visit to the Peruvian capital essential to any one who seeks a comprehensive 
acquaintance with the present conditions of our Southern neighbors. Wide 
streets, beautiful squares, crowded business thoroughfares, attractive residential 
districts, all testify to the social and commercial importance of the city. 

Peru has had to contend against great difficulties. Her remoteness from 
Europe and from the United States has served to isolate her, but that day has 
passed or is rapidly passing. In the extent and variety of her natural resources few 
nations of the world are so rich and the time must soon come when these riches 
will bring to her people a new era of prosperity greater than any they have enjoyed 
in the past. To one whose acquaintance with the Republic is confined to a 
brief visit and much reading, this development would seem to be inevitable. 

On the day following our arrival in Lima, I called upon the American 
Minister, Mr. Benton McMillin, in the morning and in the afternoon upon the 
Minister of Foreign Affairs, Senor Tudela y Varela, through whose courtesy I 
was presented to the President, Senor Billinghurst. The President's reception 
was extremely cordial. He spoke English perfectly, and showed a deep knowledge 
of the affairs of the United States. In the objects of my visit and the work of 
the Endowment he manifested a most friendly interest. 

Upon returning to the hotel I found that many persons had called and the 
visits continued after my arrival. Dr. Lizardo Alzamora, Rector of the Univer- 
sity of San Marcos and Dr. Eleodoro Romero, Dean of the Faculty of Law, 
were among those who took this early opportunity to promise their cooperation 
in the objects for the accomplishment of which the Endowment had instructed 
me to visit Peru. 

The next day was taken up entirely with visits. I found the most friendly 
interest everywhere and the warm hospitality of every one, the sincere desire to 
be of service, made us all quickly feel that in heart at least, we were not strangers. 
The leading men gave me freely the benefit of their invaluable advice, devoting 
their time with the utmost willingness. I can never sufficiently thank them. Were 
I merely to mention the names of those to whom I am indebted, the list would 
fill several pages and even then be incomplete, but elsewhere I have taken 
occasion to express my gratitude to a few of those whose services so con- 
spicuously helped me. 



FOR BETTER RELATIONS WITH OUR EATIN AMERICAN NEIGHBORS 43 

In the evening we met new acquaintances and renewed others at a dinner 
and reception which Senor and Senora Felipe Pardo gave for Mrs. Bacon and 
myself. 

I had an opportunity the next afternoon to explain to a distinguished gather- 
ing the methods and purposes of the Endowment. The University of San 
Marcos conferred upon me honorary membership in the Faculty of Juris- 
prudence, and the ceremony was made the occasion for an address by Dr. 
Eleodoro Romero, Dean of the Faculty, who presented me with a diploma and 
the medal of the corporation. In my response I described in detail, as requested 
by members of the Faculty, the work of the Endowment, following the lines of 
previous addresses. I cannot leave this subject without expressing the gratifica- 
tion it gave me to receive this honor and to have the privilege of speaking at the 
oldest seat of learning on the American Continent. It must fill any American 
with pride and reverence to enter the beautiful patio of the University, climb the 
ancient stone stairway to the wide verandas and visit the great halls with the 
portraits of rectors of the University from the time of its foundation in 1551, 
looking down from the walls. Through centuries of great stress, through war 
and revolution and untold hardships, earnest teachers and students of San 
Marcos have kept brightly burning the first lamp of learning lighted in the new 
world. 

From the University we went to the American Legation, where the Minister 
and Mrs. McMillin were giving us a charming garden party. 

There were further interviews the day following with Dr. Manuel M. 
Mensones, Dr. Manzanilla, Dr. Maurtua, Dr. J. A. de Lavalle of the Supreme 
Court and his son, Dr. Juan Bautista de Lavalle and with others, interspersed 
by visits from Senor Pardo, Professor Wiesse, who had met us at the steamer, 
Dr. Julio Tello, a Peruvian who graduated from Harvard in 1909 and who is 
now Curator of the National Museum, Senor Cisneros, Mr. Pennoyer and a 
host of others, who had seized every opportunity to render their valuable services. 
I had a most enjoyable talk with Dr. Ramon Ribeyro, one of the finest of the 
elder statesmen of Peru, who has long been prominent in the intellectual life 
of the Republic, and who readily gave me the benefit of his advice and great 
experience. 

In the afternoon the University Club gave me a reception at which brief 
speeches were made by the President, Senor Luis G. Rivera, and others. In the 
evening there was a large banquet given by the Minister of Foreign Affairs and 
Senora Tudela y Varela. The Minister proposed a very gracious toast to which 
I responded. 

The following morning we made an interesting visit to the Senate upon 
the invitation of General Elespuru, President of the Senate. In the afternoon 
the Colegio de Abogados, or Bar Association, conferred upon me the honor 
of honorary membership, presenting me with a medal. I was introduced by the 
Acting Dean, Dr. Manuel F. Bellido, and in reply spoke on the subject of the 



44 MR. BACON'S VISIT TO SOUTH AMERICA 

American Institute of International Law and the national Societies of Inter- 
national Law. Dr. Anibal Maurtua followed with a discourse, after which there 
was the "copa de champafia," and many exchanges of friendly sentiments. 

The Geographic Society also conferred honorary membership upon me and 
there was a short speech of presentation of the diploma by Sehor Jose Balta, 
the President of the Society. 

With extreme pleasure I look back upon the banquet offered in my honor 
by the University of San Marcos in the great hall of which I have already spoken. 
It was, as far as public entertainments were concerned, the occasion of our 
leave-taking of South America, and surely I could not have imagined any form 
of farewell which would have left in our minds more appreciative recollection. 
The informality, the cordiality, the good-humor and the good friendship of the 
occasion all served to make it memorable. Dr. Romero and Dr. Javier Prado y 
Ugarteche made delightful informal speeches, in reply to which I found it 
difficult to express the gratitude I felt. 

The two days before our departure on November nth, were devoted to visits 
and to organizing the work that was to be done. A very strong committee was 
got together as a basis for the permanent organization of a national Society of 
International Law. Its membership included : 

Dr. Francisco Tudela y Varela, Minister of Foreign Affairs ; 

Dr. Lizardo Alzamora, Rector of the University of San Marcos ; 

Dr. Ramon Ribeyro; 

Dr. Javier Prado y Ugarteche, Senator, member of the Faculty of the 

University ; 

Dr. Eleodoro Romero, Dean of the Faculty of Law; 

Dr. Jose Matias Manzanilla, member of the Faculty of the University; 

Dr. Adolf o Villagarcia; 

Dr. Antonio Miro Quesada, editor of Bl Comercio; 

Dr. Alberto Ulloa, editor of La Prensa; 

Dr. Anibal Maurtua, member of the Faculty of Law; 

Dr. Victor Andres Belaunde, Professor of International Law ; 

Dr. Juan Bautista de Lavalle, member of the Faculty of Law. 

For the position of Honorary Secretary of a national Society for Inter- 
national Conciliation we were fortunate in obtaining the acceptance of Dr. Juan 
Bautista de Lavalle, member of the Faculty of Law of the University of San 
Marcos. 

I had the privilege of attending on the last day of our stay in Lima, 
the opening session of the Latin-American and Pan-American Medical 
Congress. Many of the delegates to this Congress had been in Lima through- 
out the period of our visit, some having come from the South with us on the 
Oronsa, and I had had many interesting conversations with Dr. Odriozola, the 
President of the Congress, Dr. Domingo Cabred, of the Argentine delegation, 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 45 

Dr. Gregorio Amunategui Solar, of Chile, Dr. Nascimento Gurgel and Dr. 
Placido Barbosa, of Brazil, and others. 

It would have been difficult if not impossible to find a body of men more 
thoroughly representative of Latin- American thought and culture than this body 
of scientists, who, in a practical manner, were devoting their lives to a humani- 
tarian purpose and by international gatherings, such as that which, before a dis- 
tinguished audience including President Billinghurst, was convened in Lima on 
November ioth, were contributing so effectively to the better understanding 
between nations. 

^ So greatly impressed had I been with the fact that these eminent leaders in 
their profession were achieving in their work some of the objects for which the 
Endowment was founded, that I took the liberty of suggesting to some of their 
members the possibility of sending delegates from the Congress to visit the 
United States under the auspices of the Endowment. The suggestion met with 
ready approval and it is a source of deep gratification to me that the Trustees 
have also acted favorably upon the proposal. It is not necessary to dwell upon the 
importance of such visits and the great good that must surely result from 
them. 

Our visit to Lima had been of longer duration than any other visit we 
had made in South America, and this fact afforded to some of our party the 
opportunity for sight-seeing. One day had been devoted to an inspection of 
Inca mounds near the city, a highly interesting excursion, taken under the per- 
sonal guidance of Professor Carlos Wiesse, who had been most attentive. On 
another day some of us had taken an excursion over the Central Railway into 
the mountains on the way to Cerro de Pasco, and were afforded an excellent 
opportunity of inspecting this truly wonderful example of mountain railway 
engineering which had sprung a half a century ago from the brain of an engineer 
from the United States, Henry Meiggs. 

The nine days we were in the Peruvian capital are crowded with sou- 
venirs of the kindness of its charming people. There were frequent visits to 
the houses of members of the old society, the oldest, I believe, on the American 
continent, where Spanish traditions of hospitality were first transplanted in 
the new world. To Sefior and Senora de Barreda, the parents of Sefiora Felipe 
Pardo, who, with her husband, did so much for us while we were in Lima, we 
shall always be deeply indebted and there are memories of other delightful 
visits; of an afternoon at the historic Casa de Torre-Tagle, one of the finest 
examples of the ancient Spanish architecture in South America, where we 
had tea with members of the Ortiz de Zevallos family; of a tea at the house 
of Dr. Prado y Ugarteche, a luncheon with Senor Alvarez Calderon and Senora 
Alvarez Calderon de East and of other informal meetings with Peruvian acquaint- 
ances whom we quickly came to regard as friends. 

When we left Lima for Callao a great number of our friends were at the 
station to bid us good-bye. Among them were the Minister of Foreign Affairs, 



46 MR. BACON S VISIT TO SOUTH AMERICA 

Senor Tudela y Varela; the Military representative of the President; Senor 
Cisneros; Mr. and Mrs. McMillin; Senor and Sehora Felipe Pardo"; Senor 
Alvarez Calderon ; Dr. Alzamora ; Dr. Romero ; Dr. de Lavalle ; Professor Carlos 
Wiesse ; Mr. Pennoyer and a great many others who had done so much to make 
our visit enjoyable. 

We left Peru with a feeling of deepest gratitude for all the evidences of 
friendship we had seen and with a lively sense of regret that our enjoyable visit 
could not be prolonged. The cordiality, the real friendship which the countries 
we visited had expressed and shown for the United States was nowhere more 
marked than it had been in Lima, and the Trustees of the Endowment will have 
there a most effective support. 

With the increased immigration which must, it would seem, naturally 
follow upon the opening of the Panama Canal, Peru will assume a 
more important place in American affairs. It is in this looking toward 
the future that one finds the greatest encouragement in the present 
fraternal attitude of its leaders of public opinion. Our intercourse must 
become daily more frequent and with it the clearer realization that here, close 
to the south of us, is a nation with ideals similar to our own, which, in spite 
of obstacles, is pushing steadily forward in the path of progress, and which 
never loses an opportunity of manifesting its friendliness toward the United 
States. 

In Panama 

The Peruvian steamship, Mantaro, on which we journeyed northward, was 
a very comfortable ship, kept scrupulously clean. We put in at Salaverry, Pacas- 
mayo, Eten and Payta, seeing on our way many evidences of the recent develop- 
ment of the mineral and oil lands near the coast. 

We arrived in the Bay of Panama, a beautiful bay, flanked with wooded 
islands, on November 18th, and remained on board until the next day, when 
the quarantine period expired. The very sight of the city of Panama must 
inspire varied emotions in an American. Near here began, under the indomitable 
Pizarro, the conquest of the great countries we had just left. It was to this 
coast that he came with Balboa in that first journey across the isthmus, and it 
was here that he returned after defeat, which made him all the more determined 
to push on into the unknown lands to the south, the "ultimate dim Thule" of 
adventurous explorers. And now the city is the southern portal of that "bridge 
of water" which has been built by heroes of to-day not less indomitable than 
were Pizarro and his band of conquistadores. Once the starting place of expedi- 
tions which transformed a continent, Panama is now the scene of what has 
been called the last great transformation of the earth's arrangement left for 
man to undertake. 



FOR BETTER RELATIONS WITH OUR LATIN AMERICAN NEIGHBORS 47 

Colonel Goethals had sent out a launch for us with an aide who gave us 
our first real view of the canal, taking us as far as the Miraflores locks. 
Returning, we put ashore at Balboa, and went thence by train to Panama. 
This interesting excursion had been the cause of our missing the American 
Minister, Mr. William Jennings Price, the Secretary of the Legation, Mr. Wicker, 
and Senor Lefevre, Minister of Foreign Affairs, and other officials of the Pana- 
manian Government, who had been to the landing stage at Panama to give us 
an official welcome. We had the pleasure of seeing them later at the hotel, and 
the next day with Mr. Price I paid a visit to Senor Lefevre, through whose 
courtesy, I had an audience with the President. We were in Panama only that 
day and a part of the next. I took the occasion, however, to talk with repre- 
sentative men and from them I learned that the Republic of Panama offers an 
excellent prospective field for some of the activities in which the Endowment 
is interested, but the immediate present was considered an inauspicious time in 
which to undertake the work. The approaching opening of the canal, the com- 
parative newness of the Republic, and the many questions of internal organi- 
zation and development all serve to occupy the public interest and it was con- 
sidered advisable to postpone for the moment the discussion of other matters. 

Senor Lefevre and Senor Estripeant, aide-de-camp of the President, were 
most attentive and I cannot sufficiently thank them or our Minister, Mr. Price, 
for their kindness. 

After a final morning of sight-seeing and a luncheon at the home of Colonel 
Judson, who had taken us on a most interesting tour of inspection of the Gatun 
Locks, we sailed from Colon for New Orleans on November 20th, arriving there 
five days later. 

It had been our desire to visit Venezuela and our itinerary had originally 
included Caracas, but we found, upon arrival at Panama, that the steamship con- 
nections with La Guayra were such that we would be unable to make the journey 
in the limited time at our disposal. 

We expressed our regret in a letter to the American Minister at Caracas, 
and took the liberty of sending to him copies of the pamphlets we had distributed 
among representative South Americans, for the purpose of distribution among 
the leading men in Venezuela. 

We arrived in New York on Thanksgiving day, November 27, 1913, just 
two months and four days after our departure from Lisbon. This mention of 
the time occupied by our long journey may be helpful in correcting the general 
impression in the United States that a visit to South America requires more time 
than is usually allotted to a summer's tour of Europe or a winter sojourn on 
the Mediterranean. It is difficult to imagine a tour of ten weeks more varied or 
more filled with interest. From a scenic standpoint the journey is of almost 
incomparable beauty, but the thought that must chiefly hold and thrill the visitor 
is that he is observing new races and new countries in the most interesting stages 



48 MR. BACON'S VISIT TO SOUTH AMERICA 

of their evolution. These nations are destined to play a great part in the 
future, and it requires no strain upon the imagination to picture the vast 
unoccupied lands in the South American continent as the theatre of a new world 
development. 

It is a duty we owe to ourselves, and one which the Endowment may well 
help our people to fulfill, to get into closer contact with our friends in South 
America. Almost surely, I believe, the travel between our countries will increase, 
and with this better knowledge of each other will come truer and more enduring 
friendships. 

Respectfully Submitted, 

Robert Bacon. 
March 15, 1914. 



Interview in The New York Evening Post, 

December 13, 191 3 

As the representative of the Carnegie Endowment for International Peace, 
Robert Bacon, ex-Secretary of State and ex-Ambassador to France, has just 
returned from a tour of Brazil, Argentina, Uruguay, Chile, and Peru. The jour- 
ney was made for purposes connected with various activities in which the Endow- 
ment is interested. These include the formation of societies of international law 
which are to be affiliated with the American Institute of International Law, 
founded in 1912, and of which Elihu Root is the honorary president. Mr. Bacon's 
visit had also the object of organizing Associations of Conciliation and arranging 
for the interchange of visits of representative men between this country and South 
America and the exchange of professors and students of universities. By these 
means the Endowment hopes to establish closer relations between the nations of 
the Western Hemisphere. 

"It is difficult to exaggerate," said Mr. Bacon to-day, "the manifestations of 
friendliness for the United States which were exhibited in every country. In 
spite of misrepresentations and misunderstandings, caused nearly always by our 
ignorance of the real conditions in South America, we have no truer friends any- 
where in the world than in these sister republics of the same continent. They 
welcome every opportunity to testify their regard for us." 

From this city Mr. Bacon went first to the Philippines by way of San Fran- 
cisco and continued his journey westward through Japan, China, and Siberia, to 
Europe, sailing from Lisbon for Rio de Janeiro on September 23. 

After visiting Brazil, Argentina, Uruguay, Chile, and Peru, he went from 
Lima to Panama, and returned to New York by way of New Orleans. In all he 
travelled about 35,000 miles. On his journey around the world he was accom- 
panied by Mrs. Bacon and Miss Bacon. Otto Schoenrich, president of the 
Nicaraguan Mixed Claims Commission, and Mrs. Schoenrich, and W. R. Here- 
ford joined the party in Paris for the South American tour. 

Across the Andes by Rail 

In describing the purposes of his visit Mr. Bacon said : 

"I went to South America with instructions from the President of the Endow- 
ment, Senator Elihu Root, regarding specific objects in connection with activities 
in which the Endowment is interested. From Rio de Janeiro we went next to 
Buenos Aires, crossing the Plata River to Montevideo ; then returning to Buenos 
Aires, and proceeding to Santiago de Chile by the wonderful Trans-Andean Rail- 
way, a narrow-gauge road, which ascends to a height of 10,500 feet, passing near 



50 MR. BACON'S VISIT TO SOUTH AMERICA 

some of the loftiest mountains of this hemisphere. From Santiago we went by- 
steamer to Callao, the port for Lima, and thence by a comfortable Peruvian 
steamer to Panama." 

Mr. Bacon thus explained the friendly reception he met with : 

"The visit to South America made by Mr. Root in 1906, when he was Secre- 
tary of State, has had an enduring effect in bringing about a better understanding 
between the Latin republics and the United States. That visit is vividly remem- 
bered and constantly referred to in the speeches and writings of the brilliant repre- 
sentatives of public opinion throughout South America. To it, perhaps, more 
than to any other single circumstance is to be attributed the present attitude toward 
us ; for Mr. Root, as will be remembered, by his doctrine of sympathy and under- 
standing, of kindly consideration and honorable obligation, was able to allay or 
eradicate the suspicion and distrust of our motives that had been slowly engen- 
dered. 

"It is the belief of Mr. Root and his fellow trustees of the Carnegie Endow- 
ment that a great part of the misunderstandings between nations arises from a 
lack of knowledge of each other, a lack of knowledge of conditions and senti- 
ments. The Endowment seeks by practical means to overcome this ignorance. 

Objects of the Visit 

"The objects of my visit to South America included the formation of national 
societies of international law ; the organization of associations to be affiliated with 
the Association of International Conciliation in Paris, of which Baron d'Estour- 
nelles de Constant is the president and founder ; the arrangement for an exchange 
of visits of representative men from the Latin republics to the United States and 
from this country to South America, and for a similar exchange between the 
professors and students of their universities and our own. 

"The Institute of International Law, founded in 1873, is composed of the 
most eminent jurisconsults of Europe and America. The American Institute 
was founded a little more than a year ago with Senator Root as the honorary 
president and Dr. James Brown Scott as president. The aims and objects of 
each Institute are largely identical, but, as was asserted by the founders in the 
formal statement of the aims and objects of the American Institute, 'the part that 
treats of war is of secondary importance, as the proposers believe that the principles 
of international law are generally applicable and should be studied and developed 
so as to maintain the status of peace, which so fortunately exists between the 
American republics.' 

"By the formation of these national societies, it is hoped to popularize the 
principles of law governing the relations of nations so that, in course of time, 
governments will be obliged by popular opinion to conduct themselves with due 
regard to such principles. 



INTERVIEW IN THE NEW YORK EVENING POST 51 

"Through this initiative of the Endowment national societies of international 
law have now been either actually formed or are in process of formation in Rio 
de Janeiro, .Buenos Aires, Montevideo, Santiago de Chile, and Lima. They will 
be affiliated with the American Institute and their intercommunication through the 
Institute will afford a new and valuable means for the exchange of ideas between 
the leaders of opinion in North and South America. 

"I also had the honor of explaining and inviting participation in the proposed 
Academy of International Law at The Hague, and of suggesting the necessity of 
the appointment of national committees for the discussion of contributions to the 
programme of the next Hague Peace Conference. The work of the Division of 
Economics and History of the Endowment was also explained. 

"In no better way, perhaps, can an understanding of each other by the 
republics of America be accomplished than by an exchange of visits of represen- 
tative men and an exchange of professors and students of universities. 

"In scientific and professional life there is now such an international exchange 
constantly going on. Congresses of representative men from all over the world 
meet and reap immeasurable benefit from the exchange of ideas, and by these 
exchanges the nations, through their representative men, are drawn into a closer 
communion with each other, with a resultant better international understanding. 

"Under the auspices of the Division of Intercourse and Education of the 
Endowment, of which Dr. Nicholas Murray Butler is the Director, Baron 
d'Estournelles de Constant, of France, the Baroness von Suttner, of Austria, 
and Professor Nitobe, of Japan, have already visited the United States, and 
President Eliot, of Harvard University, has visited India, China, and Japan, 
and Dr. Hamilton Wright Mabie has visited Japan. 

"It is hoped in the near future to have visits from representative South 
Americans to the United States, and it is the purpose of the trustees of the En- 
dowment to continue the exchange of visits thus begun. 

"It is expected, also, to inaugurate an exchange of professors between South 
American universities and the universities of this country, and to arrange the 
details of an exchange that will include the students of universities." 

Mr. Bacon spoke frankly of how the Endowment expected to achieve its ends 
and of the aid which will be accorded it by influential South Americans. 

"Through these practical methods the Endowment is endeavoring to estab- 
lish closer relations between nations," he explained. "It is not to be hoped that 
the results achieved will be immediately apparent. The very fact that persons 
impatiently expect visible evidences of the progress made has led to much of the 
pessimism and skepticism ovie encounters when discussing these subjects. 

"As Mr. Root has pointed out: 'The trustees of the Endowment are fully 
aware that progress in the work which they have undertaken must necessarily 
be slow, and that its most substantial results must be far in the future. We are 
dealing with aptitudes and impulses firmly established in human nature through 
the development of thousands of years, and the utmost that any one generation 



52 MR. BACON'S VISIT TO SOUTH AMERICA 

can hope to do is to promote the gradual change of standards of conduct. All 
estimates of such a work, and its results, must be in terms not of individual 
human life, but in terms of the long life of nations. Inconspicuous as are the 
immediate results, however, there can be no nobler object of human effort than to 
exercise an influence upon the tendencies of the race, so that it shall grow, how- 
ever slowly, in the direction of civilization and humanity, and away from sense- 
less brutality.' 

"The leading men of South America are very far advanced in their under- 
standing and appreciation of the good that must follow these international ex- 
changes. The rapid, material development of their wonderful countries has in 
no way blunted their lofty idealism, and nowhere can there be found men more 
willing or more able to work together for a common, humanitarian purpose. 
All that is suggestive of social progress makes an immediate appeal to their 
sympathies." 

Mr. Bacon had enthusiastic accounts of the condition of the countries which 
he visited, and the impression made upon him by their inexhaustible resources. 
He regarded immigration as a principal factor in their future. 

The Country of the Future 

"In regard to the development which I observed, I cannot sufficiently impress 
its significance upon our own country," said Mr. Bacon. "Some of these re- 
publics are advancing so rapidly that each succeeding year will mark an impor- 
tant change. The people have been beset by obstacles greater than those that con- 
fronted our forefathers, and but little understood by us here, but, in spite of 
them, they have forged ahead until the civilization of their larger centres compares 
favorably with the older civilization of Europe. 

"It must strike any one who visits South America that it is the country of the 
future. The natural resources are so vast that they may be said to be almost 
inexhaustible. Although so much has been written and spoken about this wealth, 
we have only the vaguest conception of it, and the part it must play in the history 
of civilization in the near future. 

"The people come of sturdy stock. In this country, our people, because of 
their lack of knowledge, are apt to class Latin-America as a whole, but the racial 
and other differences between the peoples of the various republics are as great as 
the differences between the peoples of the various countries of Europe. 

"As yet the countries of South America, even the larger countries like Brazil 
and the Argentine, are sparsely settled. Immigration has been checked by dis- 
tance and the difficulties of travel, but these conditions are disappearing. The 
improved means of communication are bringing more and more people to their 
shores. German, English, French, Italians, and Japanese have been quick to 
realize the opportunities that await them there." 

Travellers who contemplate visiting South America, Mr. Bacon says, will 
find adequate railway and steamship facilities, "There is," he said, "great and sub- 



INTERVIEW IN THE NEW YORK EVENING POST 53 

stantial benefit to be derived from an acquaintance with our South American 
neighbors, of whom too many of us are, unfortunately, profoundly ignorant. 
The representative men and women of these countries have all the charm and 
grace and intellectual culture for which the Latin races are famous. Their warm- 
hearted hospitality is proverbial. Personally, I shall never forget, nor can I ade- 
quately express my appreciation of, the kindness and courtesy of their welcome." 



Editorial from The American Journal of International Law, 

January, 1914 

Last fall the Honorable Robert Bacon, formerly Secretary of State and 
Ambassador to France, undertook a journey to South America on a mission for 
the Carnegie Endowment for International Peace, "to secure the interest and sym- 
pathy of the leaders of opinion in the principal Latin-American Republics, in 
the various enterprises for the advancement of international peace which the 
Endowment is seeking to promote ; and by means of personal intercourse and 
explanation to bring about practical cooperation" in these undertakings. With 
the exception of Mr. Root's official visit, as Secretary of State in 1906, no 
journey by a citizen of the United States has done quite so much to encourage 
and stimulate the development of cordial and helpful international relations 
between the republics of North and South America, as this memorable trip of 
Mr. Bacon. He visited Brazil, Argentina, Uruguay, Chile and Peru, being pre- 
vented by difficulties in arranging steamship and railroad connections from visiting 
the other countries as planned in his itinerary. In each country visited, Mr. 
Bacon was received with the utmost cordiality by the government, and officially 
entertained. The diplomatic representatives of the United States did everything 
in their power to render his stay in the capital cities effective of results ; and 
prominent citizens representing all elements of the business, professional and 
social life vied with each other in imparting to his mission the dignity and 
significance which its importance bespoke. The University of Santiago gave him 
an honorary degree, as did also the University of Lima ; and various scientific 
and legal societies elected him to honorary membership. His mission was every- 
where welcomed sympathetically in the newspaper press, which fully reported his 
public addresses. The success of his mission was greatly promoted by his ability 
to address his audiences in the Spanish, Portuguese and French languages. 

Mr. Bacon's more important addresses were delivered in Rio de Janeiro, 
under the auspices of the Brazilian Academy, the Institute of the Order of 
Advocates, and also at the American Embassy; in Montevideo at the Ateneo, 
under the auspices of the University; in Buenos Aires, before the Faculty of 
Law of the University; in Santiago, at the University of Chile; and in Lima, 
at the University of San Marcos and before the Colegio de Abogados. 

In each of these addresses and in his numerous conferences with the govern- 
ment officials, with educators and distinguished citizens, Mr. Bacon directed 
attention to certain of the specific plans of the Endowment, one of the most 
important of these being the formation of national societies to be affiliated with 
the American Institute of International Law. In each country visited, com- 



AMERICAN JOURNAL OF INTERNATIONAL LAW 55 

mittees were at once appointed to organize such societies, and in several of them 
the organization has already been effected. This feature of Mr. Bacon's work 
is of especial interest to the readers of this Journal ; and we may safely predict 
that as a result of it this promising institution will soon become an actual reality, 
establishing a new point of contact and a new bond of sympathy between the 
jurists and the statesmen of the northern and southern hemispheres. Both 
political circumstances and geographic situation have created new and special 
conditions, making possible understandings which, while not inconsistent with 
or antagonistic to the principles of European international law, permit agree- 
ments upon matters regarding which the rest of the world cannot yet agree. 
A distinguished professor of law at Padua stated the case concisely and com- 
pletely, when he said that "the probable cooperation of two autonomous institutes 
is preferable to the practically impossible collaboration between dissimilar 
elements of the same association." 

Mr. Bacon suggested the active participation of the several governments 
in the proposed Academy of International Law at The Hague, and we may 
anticipate the cordial acceptance by each of the formal invitation to this end. 
His suggestion that the Latin-American states appoint committees for the con- 
sideration of contributions to the program of the Third Hague Conference and 
the intercommunication of such committees among all the American countries, 
excited unusual interest, especially in Brazil, where it is expected that steps to 
this end will be taken at once. He was also most fortunate in his appeal for the 
organization of national branches of the Society for International Conciliation, 
to be affiliated with those in Paris and New York. In four of the countries 
visited competent and energetic organizing secretaries have already been 
appointed and are at work. While the South Americans have not taken kindly 
to peace societies, of the ordinary pacifist kind, they quickly respond to the 
principle upon which the Conciliation was founded, which looks to the friendly 
adjustment of international quarrels through arbitration and other similar 
methods. 

Mr. Bacon discussed fully the plans of the Endowment for the exchange 
of visits of representative men between the two continents, and also the proposed 
exchange of professors and students. Each of these projects met with sympathetic 
response, and Mr. Bacon reports that the time is already ripe for the inaugura- 
tion of the exchange of professors. One difficulty presents itself in the limited 
number of Latin-Americans who have a speaking knowledge of English, and on 
the other hand the equally limited number of North Americans who are familiar 
with Spanish. This difficulty in the way of closer intercourse between the two 
continents we are at length beginning to realize ; it is a great mission of our 
higher educational institutions to gradually overcome it. 

It thus appears that. Mr. Bacon's mission to South America was most suc- 
cessful, in the sense that it is to bear immediate fruit. It was apparent to his 



56 MR. BACON'S VISIT TO SOUTH AMERICA 

hosts that he came with no selfish purposes, — not to seek concessions, not to 
solicit business advantages, but upon an errand purely altruistic in the highest 
significance of the word. He carried a message of friendship and cooperation in 
a work which is not for the benefit of one country, but of all the Americas and 
all the world. He sowed the seeds of a new and finer international relationship,' 
and the results of his trip can hardly fail to be the establishment of intellectual 
currents of sympathy, leading to a higher and nobler civilization. 



APPENDICES 



APPENDIX I 
Paris 



Luncheon of Mr. Gabriel Hanotaux, 

Paris, September 19, i<?i3 

[Translation from The Figaro] 



The staff of the Comite France-Amerique yesterday gave a luncheon to the 
president of the Comite France-Amerique, of New York, Mr. Robert Bacon, 
former Ambassador of the United States at Paris, and to Mr. Dandurand, Sen- 
ator and president of the Comite France-Amerique in Canada, and Mrs. 
Dandurand. 

Among those present were Mr. Gabriel Hanotaux, Mr. and Mrs. Boutroux, 
Mr. Klexzkowski, Minister of France, etc. 

Mr. Robert Bacon is passing through Paris on his way to South America, 
where he goes, as has been stated, on a mission for certain American international 
organizations, headed by Messrs. Elihu Root, Butler, Scott, etc. 

Mr. Hanotaux addressed his guests in these words : 

"It is a great pleasure for the Comite France-Amerique to welcome on the 
same occasion the two presidents of the Comite in North America; the activity 
shown in the United States and Canada by these two branches of the French 
Comite has produced important results this year ; we can only say that the credit 
belongs to the two presidents who honor us with their presence. 

"Mr. Robert Bacon goes to South America in the name of persons who are 
held in the highest esteem in the great republic of the United States, to lay the 
foundations for united efforts in the interest of international law, efforts that 
should be encouraged to the utmost for the benefit of mankind. This mission has 
an entirely practical character; it contemplates the establishment of enduring 
institutions by which the principles of harmonious and thoughtful understanding 
between peoples will be developed. 

"Mr. Robert Bacon has not forgotten that only a little while ago he was 
the Ambassador of the United States at Paris, and it seemed to him that the 
intellectual relations between the South American republics and France are such 
that a preliminary visit to Paris would be of great service in bringing about the 
success of his undertaking. 

"The disseminating power of the French language and of French thought, 
as he himself has said to me, is such that to seek inspiration from French institu- 
tions and French works appeared to be one of the first duties of his mission. 



60 MR. BACON'S VISIT TO SOUTH AMERICA 

That is why he is with us today. We thank him for this faith which honors our 
country and which, we may hope, will facilitate his work among our -friends 
in South America. 

"In the hands of the eminent diplomat whose good will, intelligence and devo- 
tion have been esteemed by all Paris, and whose generosity has been felt by the 
Comite France-Amerique in particular, such a noble undertaking can not fail to 
succeed. 

"Gentlemen, I raise my glass to our two colleagues and presidents and to the 
success of the journey of our excellent and distinguished friend, Mr. Robert 
Bacon." 

Mr. Bacon replied in these words : 

"My dear Mr. President: 

"You have expressed my thought and explained the objects of my mission 
in phrases for which I can only thank you from the bottom of my heart. Yes, I 
wished to secure a hold on French thought before seeking to enter into the 
thought of South America. Your high praises and your encouragement belong 
to those who have prepared and directed my mission. This hour in particular, 
and so many other pleasant hours that I have had the good fortune to spend in 
Paris, I shall never forget during my journey. 

"I drink to the prosperity of the work which you have founded, a work of 
such broad international scope: to the prosperity of the Comite France- 
Amerique." 



APPENDIX II 
Brazil 



Address of Dr. de Oliveira Lima, 

Before the Members oe the Historical Institute oe Brazil, at the American Embassy, 

Rio de Janeiro, October 8, 1913 

Excellency : 

The president of the Historical Institute, Count Affonso Celso, who suc- 
ceeded Baron de Rio Branco in the post, appointed at our last meeting a com- 
mittee of ten members to welcome you in this country in the name of that asso- 
ciation, the oldest intellectual association of Brazil and possibly of South America. 

We boast, indeed, of our three-quarters of century of existence, as we boast 
of the invaluable services rendered by several generations already of historians 
and searchers of documents, to the study of our past. The late Emperor of 
Brazil, Dom Pedro II., whose memory is as respected in the United States as it 
is cherished here, used to preside over our meetings and to guide our work. 

You see that through the nature of our studies, as well as under the influence 
of such names as I have mentioned, the Historical Institute is a society of peace, 
just as much as the foundation which you are representing in our Southern con- 
tinent. You are certainly peace in action, peace in movement, peace resting on 
the conscience of national responsibilities and international rights and duties. 
We are peace in theory, peace in feeling, peace in tradition, I dare even say, 
because the wars in America, especially in independent America, have been more 
wars for freedom than wars for ambition. 

I do not say they have been exclusively so, as every portion of humanity 
carries with it faults and crimes, and this is why so much is being done to spread 
international respect and amity ; but the fact is that we all have won our liberties 
through our will and are all trying to uphold them. Brazil under the Empire 
had two foreign wars, but both were made against foreign tyrannies and not 
against foreign peoples or nationalities. 

By every reason, then, your mission appeals to our deepest sympathy and 
you may be sure to find in this country a congenial environment. The work 
of the Carnegie Endowment for International Peace is not yet well known by 
us here, but we shall soon be in heart with its purposes. The section of Latin 
America that we constitute strives for its development without hurting any 
legitimate aspirations of others. 



62 MR. BACON'S VISIT TO SOUTH AMERICA 

Personally your name is familiar to us as a successful ambassador and Sec- 
retary of State ; also as the friend and collaborator of Mr. Root, which means 
that you both have about politics and diplomacy a conception far above the com- 
mon one. Politics must not be divorced from intellectualism ; diplomacy is not 
to be simply materialistic, but a fight for noble ideals of juridical understanding, 
international friendship, and moral solidarity. 

You will meet everywhere the sympathy due to your personality as you will 
feel that the United States are truly esteemed in Brazil. We trust your efforts 
for international conciliation and we are ready to help them as much as we admire 
and try to follow your lessons of untiring industry and civic education. 

Response of Mr. Bacon 

[Translation from the French] 

Excellency, Gentlemen of the Historical Institute: 

I find no words in which to thank you from the bottom of my heart for 
your charming welcome and your kind expressions which have profoundly 
touched me. 

I have come on behalf of the Carnegie Endowment for International Peace 
and I bring to you the affectionate greetings of its eminent President and your 
devoted friend, the Honorable EHhu Root, whom I love and whom you also love, 
I am sure. It is strikingly recalled to my mind that since his memorable visit to 
your country in 1906 and since the Hague Conference in 1907 there has been a 
great change, a wonderful progress in the development of international law, of 
the Law of Nations, in which the celebrated publicists of your country, the 
jurisconsults of all Latin America, have taken an important part. 

In the words of Dr. de Louter of the University of Utrecht, the noted 
publicist of Holland : "Latin America, which by its talent and the eloquence of 
its delegates somewhat surprised the diplomats of Europe at the Second Peace 
Conference, has since then shown an energy and resourcefulness at once 
humiliating and encouraging to those who have shown them the way. All who 
believe in peace founded on law can only applaud the vigorous workers on the 
other side of the ocean who are engaged in building the solid foundations of a 
structure of law instead of pursuing the ephemeral phantasies of fruitless good 
intentions." 

Now, Mr. Root, who wishes soon to quit the life of active politics and devote 
his efforts chiefly to this cause, to the expansion of this structure, has very close 
to heart the promotion of certain definite activities of the Endowment. 

I beg you to give these practical projects your serious consideration not only 
to strengthen the ties of friendship and solidarity between our two beloved 
countries, but for the sake of humanity and to advance and promote liberty and 
justice among the nations of the world." 



APPENDIX II 63 



Remarks of Dr. de Oliveira Lima, 

At the Reception at the American Embassy, 
Rio de Janeiro, October 8, 1913 

{Translation from the Portuguese] 

The Ambassador of the United States of America has entrusted to me the 
very honorable duty of introducing to this Assembly of Brazilians, eminent 
for their knowledge and social position, our illustrious guest, Mr. Robert Bacon, 
former Secretary of State and lately Ambassador from his country to the French 
Republic, who is now devoting his energy, talent and experience to that most 
noble crusade, the Crusade of Peace. 

You must not, however, expect a man of his attainments, his accomplish- 
ments and his breadth of mind, to confine himself to Utopian ideas or nattering 
illusions. Mr. Bacon desires to see a triumphant peace accomplished rather 
through reason than through sentiment, that is, through the universal conscience, 
through the propagation of, and respect for, the principles of international law. 

He will explain to you, with the conciseness and lucidity which have 
distinguished his political and social work, the aims (as varied as 
they are practicable) of his mission, — a mission which is most inter- 
esting and of great scope and which the Carnegie Endowment, in the interest 
of universal peace, has entrusted to his care and to his devotion with the con- 
viction that throughout Latin America he will be listened to with respect and 
sympathy as voicing the sentiments of our friend and collaborator, Mr. Elihu 
Root, that distinguished statesman who has given us such sincere proof, during 
the tenure of his office as Secretary of State of the great Union, of his respect 
for the rights of other peoples and for the legal personality of other nationalities, 
whose noble aim it is to link the entire New World into one unfettered and impos- 
ing Union of culture. 

Response of Mr. Bacon 

{Translation from the Portuguese"] 

I am sure, Gentlemen, that you will pardon me if, instead of speaking in my 
own language in acknowledgment of your kind expressions of welcome, which 
have moved me profoundly, I say a few words of thanks in your beautiful 
tongue, with the assurance that though these words may be poorly expressed, 
they come from my heart. 

I know it must appear presumptuous for me to address you in Portuguese, 
but I must ask your kind indulgence for two reasons. First of all I must refer 
to the very high esteem I have always cherished for the noble Portuguese tradi- 
tions, which but recently have been refreshed in my mind by my stay in Lisbon, 
whence I have just arrived. There, at the foot of the statue of the great Camoes, 
I recalled the memory of that distinguished Brazilian, whose eloquent words 



64 - MR. BACON'S VISIT TO SOUTH AMERICA 

and writings first developed my sense of appreciation for the beauties of the 
"Lusiads" and the charm of the "Rimas." I refer to my illustrious and gentle 
friend, Joaquim Nabuco, sage, poet and statesman, whom I learned to know 
and love during an intimacy of four years in Washington and whom I was proud 
to call a friend. 

Another reason that I offer as the inspiration for my addressing you in 
your beautiful language is that on the eve of my departure from the United 
States, at the banquet where I was able to greet my esteemed friend, your 
Ambassador, Mr. Domicio da Gama, I had the great pleasure to find myself 
seated at the side of your illustrious Minister of Foreign Affairs, His Excel- 
lency, Mr. Lauro Miiller, who, with that gentleness and charm of manner so 
natural to your race and country, spoke to us in very good English. My 
compatriots will never forget the pleasure that the presence of Dr. Miiller pro- 
duced, nor the distinguished honor conferred upon us by your country when it 
appointed him to return the visit of our esteemed friend, Elihu Root. For us 
of the University of Harvard, it was especially gratifying to have him accept our 
diploma and thus become a member of our Harvard family. 

I have the honor of having been sent to Brazil by the Carnegie 
Endowment for International Peace, of which Mr. Root is the heart and 
soul. The message that I bring from him is a message of good-will, which, as 
expressed by that eminent author and jurist, Dr. Ruy Barbosa, truly meets with 
the "sanction of American opinion," but it is particularly a message of regard 
and esteem from Elihu Root for his good friends here. This mission affords 
me greater pride and pleasure than any other entrusted to me during my entire 
life. 

And how can I begin to express my feelings at the first sight of this wonder- 
ful city, the magic city of Rio de Janeiro? For, in spite of all that has been 
said or written about its beauty and its bewitching grandeur, it surpasses my 
most extravagant dreams. It is incomparable and I envy you the continual 
pleasure and inspiration, the force and courage that you must derive from it. 

Again, Gentlemen, I assure you of my most profound gratitude for the 
cordial reception and the distinguished honor that you have accorded me. 

[Translation from the French] 

It is a very great pleasure to me to be permitted to visit, if only for a few 
days, far too short, some of the peoples and countries of South America, for it 
has been one of my most cherished dreams, which I have been able only partially 
to realize as yet, to see with my own eyes your wonderful countries, the marvels 
of your civilization, to meet again friends whom I have known and loved in 
other parts of the world, — to make other friendships which will add a new 
joy to life and fill me with memories which neither time nor distance can dim 
or efface. I come charged with a message of good-will from your devoted 



APPENDIX II 65 

friend and great admirer, Mr. Elihu Root, at whose request, anticipated by 
my own desire, I have the honor to appear before you. I wish I could say to 
you all that he would say were he here in person to address you and to greet you 
as an old friend. The expressions might differ, perhaps, but I assure you the 
spirit behind them would be one and the same. 

The visit which you recently made to the United States, Mr. Minister, 
will have a lasting influence for good. We tried to show you the real feeling 
of welcome which was in our hearts. We have much to learn in the matter of 
courtesy and hospitality for which you Brazilians are so justly celebrated; but, 
as Senator Root has well said, the real feeling of welcome in the hearts of the 
people of the United States was worth much more than any demonstration the 
government of the United States could possibly make. 

My mission for the Endowment has been referred to as a mission of friend- 
ship and good-will. That is very true and I am proud of it, but since ties of 
friendship already bind us, may we not go further than that? 

For my part I should like it to be regarded as a mission of co-operation and 
mutual help among old friends with the object of discussing, studying and planning 
practical means whereby we can work together and march forward toward 
progress, toward the ideal of humanity, toward greater enlightenment, for the 
triumph of Right in the world, replacing resort to force by resort to justice; 
toward an international opinion which will have the true sanction of international 
law. 

The people of our two Republics are idealists. Monsieur Hanotaux, former 
Minister of Foreign Affairs of France, said in a recent article : "At the Hague 
Conference it was the delegates of the South American Republics, notably those 
of Brazil, who advanced the strongest and most original ideas. They were 
absolutely in the forefront of human thought, a fact which merits considera- 
tion." 

The noble words spoken by Mr. Root in 1906 at the Pan-American Con- 
ference represent the sentiments and the ideals of the people of the United 
States as truthfully and as forcefully today as when they were spoken seven 
years ago, for governments may change, but the sentiments of the people remain 
the same. I like to think of this memorable declaration as the "Root Doctrine" — 
the doctrine of sympathy and understanding, of kindly consideration and honor- 
able obligation — and I am proud to be considered worthy to speak of it as a 
humble apostle. 

I would like to have you look upon me as inaugurating a series of inter- 
national visits which will follow each other without break and be mutually 
advantageous by bringing together accredited representatives of the life and 
thought of the Southland as well as of the North ; and inviting you to co-operate 
in the establishment of international institutions which will, we hope, become 
centers of good-will, develop and popularize just and progressive principles of 
international law upon which international good relations must depend, and in 



66 MR. BACON'S VISIT TO SOUTH AMERICA 

various ways, directly and indirectly, by an exchange of thought, an exchange 
of views and a happy combination of effort, result in strengthening the bonds of 
friendship which a common past, common institutions and a common goal urge 
and demand. 

History and Nature have inspired and increased a deep feeling of solidarity, 
not only between the countries of Latin America, but also between the Republics 
of the South and the United States. It behooves us to maintain and strengthen 
this solidarity which, by reason of its two-fold origin, unites inseparably the 
nations of the new continent, in the past, in the present and in the future. 

One need only glance at the political history of the New World to see the 
constant interest the United States has taken in the struggle of the Latin American 
nations, first to free themselves from the mother country and then to defend 
the independence they had won against all attempts at conquest on the part of 
European powers. Moreover we might briefly recall that, after the emancipation, 
the United States furnished the Latin states with the forms and basic principles 
of their political institutions, particularly of their republican and democratic 
government, precisely at a time when the ancient political institutions of Europe 
were far from responding to the ideas of liberty and to the social conditions of 
the two Americas. 

All this glorious past in the history of the New World should strengthen 
day by day the indissoluble bonds which have united the American nations since 
the beginning of their political life. 

Nature has added to the work of History. The geographical situation of the 
nations of the New World has brought into being a series of problems common 
to all the states of the continent, thereby creating among them new ties of solid- 
arity. Thanks to the progress of civilization and the perfection of means of 
communication, we in America have come to see the imperious necessity of 
solving in a uniform manner problems arising out of situations and conditions 
peculiar to the New Continent. 

Anticipating Europe in a way, whose great powers meet in conference only 
at the conclusion of wars to determine the conditions of peace, all the American 
states have met together in pacific conferences in order to discuss questions 
common to their continent — whence the name and origin of the Pan-American 
Conferences. These conferences have borne abundant fruit — a number of 
problems of interest to America have been studied; important treaties have 
been signed with a view to developing the social and intellectual life of the 
New World ; and, finally, the representatives of the several American states have 
learned to know each other better and have come to appreciate how many and 
how strong are the ties which bind the American nations together. 

The sentiments of solidarity and fraternity which unite the countries of the 
New World in a community of interests should create a work of union and con- 
cord. The way is already open ; numerous and fruitful results have been ob- 
tained ; the time has come, therefore, to establish, in ever increasing measure, good 



APPENDIX II 67 

understanding and harmony. Above all, it is necessary to correct the misun- 
derstanding in the South of the political purposes of the United States. As Mr. 
Root solemnly declared when he was among you, the United States desires above 
all that peace and prosperity reign in Latin America, in order to strengthen and 
to tighten the bonds of friendship and of brotherhood which should unite all 
the American people. 

I have the honor to address you not merely on my own account but on 
behalf of the Carnegie Endowment for International Peace, of which Senator 
Root is President, and to invite you in his name and on behalf of its Trustees to 
co-operate with it in such ways as you may deem possible and advisable. 

In other words, the wish of Mr. Root is to enlist as fully as possible the 
sympathetic interest of the leaders of thought in South America in the various 
enterprises of the Endowment for the improvement of international relations, 
and to bring about their practical co-operation in that work. You are no doubt 
aware that there is in the hands of the Trustees of the Endowment a large fund, 
the income of which is to be devoted to these objects. The Trustees after 
consideration of the manner in which they should accomplish the purposes for 
which the Trust was established, drew up the following statement of specific 
objects to which the income of the Trust was to be devoted: 

(a) To promote a thorough and scientific investigation and study of 
the causes of war and of the practical method to prevent and avoid it ; 

(b) To aid in the development of international law, and a general 
agreement on the rules thereof, and the acceptance of the same among 
nations ; 

(c) To diffuse information and to educate public opinion regarding the 
causes, nature and effect of war, and means for its prevention and avoidance ; 

(d) To establish a better understanding of international rights and 
duties, and a more perfect sense of international justice among the inhabi- 
tants of civilized countries ; 

(e) To cultivate friendly feelings between the inhabitants of different 
countries and to increase the knowledge and understanding of each other by 
the several nations ; 

(f ) To promote a general acceptance of peaceable methods in the settle- 
ment of international disputes ; 

(g) To maintain, promote and assist such establishments, organizations, 
associations and agencies as shall be deemed necessary or useful in the 
accomplishment of the purposes of the corporation or any of them. 

In order to carry out these objects the work of the Endowment has been 
apportioned among three Divisions : 

The Division of Intercourse and Education, of which Dr. Nicholas 
Murray Butler, President of Columbia University, is Acting Director; 

The Division of Economics and History, of which Dr. John Bates Clark 
is Director; 



68 MR. BACON'S VISIT TO SOUTH AMERICA 

The Division of International Law, of which Dr. James Brown Scott, 
Secretary of the Endowment, is Director. 

The different objects set forth above are appropriately assigned to these three 
Divisions. 

It is the purpose of the Trustees not that the trust organization shall become 
itself a missionary seeking to preach the gospel of peace or directly to express 
its own ideas to the world, but rather to promote and advance in each country 
and in all countries, the organization and activity of national forces in favor of 
peace. It is not so much to add a' new peace organization to those already exist- 
ing in the world as it is to be a means of giving renewed vigor to all the activities 
which really tend in a practical way towards making peace more secure. 

To aid each of the three divisions in its work an extensive and effective 
organization has been perfected in Europe as well as in the United States, includ- 
ing a great number of the most eminent and highly respected statesmen, publicists 
and leaders of modern thought. 

The respect and friendship which the Trustees of the Endowment entertain 
for the peoples of Latin America and for the many distinguished Latin Americans 
with whom many of the Trustees have most agreeable relations of personal friend- 
ship, lead us to desire that the work of the Endowment may have the same active 
and useful co-operation in South America that it has already secured in Europe. 

Let me quote verbatim a passage from the instructions given me by Mr. 
Root, instead of paraphrasing them as I have done more than once. "You will 
observe," he says, "that one of the means by which the Division of Intercourse 
and Education proposes to advance international good understanding is a series 
of international visits of representative men. Accordingly, under the auspices of 
the Division, directly or indirectly, Baron d'Estournelles de Constant of France, 
the Baroness von Suttner of Austria, and Professor Nitobe of Japan have already 
visited the United States, and President Eliot, of Harvard University, has visited 
India, China and Japan, and Dr. Hamilton Wright Mabie is now in Japan. Your 
visit to South America comes in this category, but it has a more definite and 
specific purpose than any of the other visits which I have enumerated or which 
are contemplated under the head I have mentioned, for it is not merely to 
strengthen good understanding by personal intercourse between a representative 
North American, and representative South Americans, but also to introduce to 
the representative South Americans personally the work and purposes and ideals 
of the Endowment, and to invite our friends in South America to cordial and 
sympathetic union with us in promoting the great work of the trust." 

This is the spirit of good feeling and kindly sympathy which has inspired 
the mission, and I hardly need to assure you that it is the spirit in which I shall 
endeavor to carry it out. 

The subjects which I am directed to lay before you — other than the general 
aims and purposes of the Endowment and the methods by which the Trustees 
are endeavoring to put them into effect — are : 



APPENDIX II 69 

1. The formation of National Societies of International Law to be 
affiliated with the American Institute of International Law; 

2. The presentation to the different Governments of the countries which 
I have the honor to visit, of the opportunity to participate in the proposed 
Academy of International Law at The Hague by providing for the sending 
on the part of each Government of one or more representative students to 
that Academy, if organized; 

3. The appointment of National Committees for the consideration of 
contributions to the program of the next Hague Conference, and for making 
arrangements for the inter-communication of such Committees among all 
American countries; 

4. The establishment of National Societies for International Conciliation 
to be affiliated with the parent Association for International Conciliation at 
Paris ; 

5. To arrange for a systematic furnishing of data for the work of the 
Division of Economics and History in accordance with the program laid 
down at Berne by the Congress of Economists in the summer of 191 1. In 
connection with this last subject I beg to remind you that Dr. Kinley, who 
has been appointed a member of the Committee of Research with special 
reference to South America, will shortly make a visit to this country to 
suggest specifically the things that can be done in aid of the researches of 
this Division, to ask the advice and counsel of leaders of opinion in South 
America, and to invite especially the economists and historians of these 
countries to co-operate, as far as they may deem it possible or advisable, in 
the execution of such projects concerning South- America as they may recom- 
mend as proper for investigation and study. 

Allow me to make a final quotation from Mr. Root : 

"The trustees of the Endowment are fully aware that progress in the work 
which they have undertaken must necessarily be slow and that its most substan- 
tial results must be far in the future. We are dealing with aptitudes and impulses 
firmly established in human nature through the development of thousands of 
years, and the utmost that any one generation can hope to do is to promote the 
gradual change of standards of conduct. All estimates of such a work and its 
results must be in terms not of individual human life, but in terms of the long life 
of nations. Inconspicuous as are the immediate results, however, there can be no 
nobler object of human effort than to exercise an influence upon the tendencies 
of the race, so that it shall move, however slowry, in the direction of civilization 
and humanity and away from senseless brutality. It is to participate with us in 
this noble, though inconspicuous, work that we ask you to invite our friends in 
South America with the most unreserved and sincere assurances of our high 
consideration and warm regard." 

The scientific development of international law which has always been one of 
Mr. Root's chief labors and to which he has devoted much of his genius, has shown 
remarkable progress. The second Conference at The Hague, as has been said, 
marked the greatest single step toward the just and peaceable regulation of inter- 



70 MR. BACON'S VISIT TO SOUTH AMERICA 

national relations ever taken, with the possible exception of the step taken at 
the first Hague Conference. 

The dreams of yesterday are the realities of today; the dreams of today 
become the realities of tomorrow. The dreams of Rolin-Jacquemyns, Lieber, 
Calvo, Rio Branco, Nabuco, and other inspired leaders are accomplished facts 
today ; the spirit of their doctrines has now become a principle. 

The Trustees of the Carnegie Endowment believe that this progress can be 
hastened by practical methods. They are convinced that the ideals of the great 
thinkers can be advanced more quickly to the benefit of the world, by concerted 
efforts in certain well-defined, practical directions. That is why I have come to 
solicit your invaluable support and co-operation. 

I thank you again for your kind welcome. 

Address of Senator Ruy Barbosa, 

At the Reception at the National Library, 
Rio de Janeiro, October io, 1913 

[Translation from the Portuguese] 

Gentlemen: 

It is not my aim at this time to introduce our illustrious guest to you, for 
Mr. Robert Bacon has spent the past four days with us, and this has been ample 
to make us feel as if he were an old friend. In this worthy successor of Mr. Elihu 
Root will be at once recognized reflected, an image, dear to the hearts of 
Brazilians, of his master and predecessor in the office of Secretary of State, 
that eminent American whose policies were characterized by the advantages that 
have accrued both to this Continent and to his own. Whoever came in contact 
with him at once experienced that recognition of merit that is revealed by the 
light, the irradiating and penetrating light, which he calmly and without any effort 
diffuses around him. 

The very first time we heard him, the day before yesterday, at the American 
Embassy, through the delightful hospitality of Mr. Morgan, the distinguished 
diplomat whose charm is irresistible, he surprised us with an address, the intro- 
duction to which was delivered in our own language fluently and correctly, with 
but slight trace of a foreign accent, as if he had long been accustomed to express 
himself in our tongue. With exquisite grace and without effort, inspired only by 
natural earnestness, he revealed to us those miracles of which courtesy and 
benevolence are capable in the mind of a son of that race of the United States, 
that in its type combines the virtues, aptitudes and talents of all others. 

It is easy to see that a more fortunate selection could not have been made 
for the purpose of conveying to us from Mr. Root, Mr. James Brown Scott 
and all other friends of peace in North America, a message which our natures 
and our training cause us to receive with joy. To each one of these gentle- 
men I now respond, even though, of all those assembled here, I may be the least 
worthy. Existing circumstances confer upon me this privilege, requiring me as 



APPENDIX II 71 

the president of the Brazilian Academy and a member of the Bar Association, 
to reply in the name of those, who throughout the land are reading, thinking, 
writing and talking about this visit. 

In the address, which you are about to hear, our generous friend is going 
to define the first fruits of one of the subjects that appeal more especially to 
our interests, and he will also discuss, to a limited extent, the preliminary work 
of the Third Peace Conference. This select assembly, meeting as it does in this 
center of public education, will doubtless listen with great eagerness to the 
results of the meditation and experience of the distinguished orator, regarding 
the preliminary work of an undertaking, the realization of which, we flatter 
ourselves, will prove one of the noblest accomplishments of our time. 

Never has Brazilian sentiment interested itself so passionately in an interna- 
tional subject of a specific character as in that congress which, six years ago, 
convened in the ancient Hall of the Knights at The Hague, where delegates from 
every civilized nation of the world met and pledged themselves to weaken 
the dominion of war throughout the world. Not that we should boast of 
our humble part in the scenes enacted upon an arena having as its amphitheatre 
the entire world; but because the campaign that was waged there and which 
was of paramount importance, was conducted in the interest of right, with no 
other arms than those of intelligence, awakening in our conscience impulses 
which had not been accustomed to thrill us, and revealing, under that new influ- 
ence, a sure response, of which there had been no indications in the moral 
instincts of our nation, as is true of all parts of Latin America, and we should 
be proud of the ideal that presided there in ancient Holland, as in the heart of 
justice, under the protection of her ancient traditions of independence and liberty 
over this second ecumenical council of peace. 

Permit me to use this religious appellation that surges to my lips free of 
any flowery pretensions, as a natural expression of reverence, prompted by the 
character of the subject itself, a subject that is almost sacred and divine; a 
tribute to those aspirations that in themselves combine sufficient power to assem- 
ble the most distant and divergent members of the human family from all parts 
of the world to form a congress. It did not represent a church which claimed, 
with more or less justice, a universalism wherein the powers in general celebrated 
their catholicity, but rather the union of all churches, all confessions, all creeds, 
at a common altar of that supreme order of charity which, translated, signifies 
the abolition of armed conflict between the nations. 

The spectacle presented of kings descending from their thrones to follow 
the wake of a star in search of the birthplace of Christ, was about to be repeated 
with a grandeur exceeding that event in a movement that joined the heads of 
armies with the arbiters of war in the interests of a humanitarian ideal of man- 
kind, of brotherly love, making us feel that Heaven had sent us from Calvary 
a smiling future stretching from twenty centuries to incalculable ages to come. 
The emblem of Christianity that introduced its apostleship upon the battlefields 



72 MR. BACON'S VISIT TO SOUTH AMERICA 

as the insignia of the "Red Cross" disclosed to the minds of the fratricides of 
war, a fraternal epoch that began to appear upon the horizon but which up to 
that time had been but an hallucination in the minds of dreamers, an age when 
all divers beliefs and sects should be merged into one body, united in a universal 
effort to realize the brotherhood of mankind. 

When that idea first took form in the initial conference of 1899, the bril- 
liancy of which was duplicated in 1907, a fact of high importance was not taken 
into consideration by Brazilian politics. In spite of the fact that our Govern- 
ment (and I do not believe that I' am mistaken) was signally honored, as the 
only Government in all South America, with an invitation from the Chancellor 
at St. Petersburg, Brazil did not respond to the call that offered her a most 
enviable distinction. In his Autobiography Mr. Andrew D. White alludes to the 
surprise occasioned at The Hague by the indifference of our attitude, imputing 
that error to the carelessness of the new regime, adding that it was believed at 
that time that such an error would not have been committed by the Imperial 
Government. We could not have repeated such an act of thoughtlessness in 
1907. because, in so far as the conference was open to all constituted govern- 
ments, it would not be reasonable to assume that we should have proved the 
exception by our absence. Furthermore, at that time there was one at the head of 
the Foreign Department of our government, whose vigilant eye watched untir- 
ingly over our interests, in so far as they concerned our reputation abroad; one 
who had been trained in all important questions of international relations. But 
what palliates the error committed by us eight years before, is the fervor and 
interest manifested by public opinion among us over every echo coming from 
the second session, revealing the same degree of enthusiasm that animated their 
chosen representatives, consecrated to a mission so replete with mishaps, trials 
and regrets. 

No nation watched those sessions more assiduously or witnessed with 
more sincere emotion or greater enthusiasm the incidents that took place at those 
sessions, at which the representatives of the civilized nations of the east and 
west fraternized. None showed greater appreciation of the importance of each 
discussion that arose. None sympathized more deeply with the labor that there 
was being developed. None felt more keenly its unity with the contest to be 
fought between the most divergent traditions, contrary temperaments and con- 
flicting interests upon an unprecedented plane. 

It is not with vanity that I recall the feelings prevalent in those days when 
the flame of a new life heated the blood in our veins; but, on the contrary, it 
is rather to emphasize the magic of the current that crossed the Atlantic to 
a people of lesser activity and lesser civic energy, surcharging the air and 
animating the lethargic multitude. Skeptics declare that these moral influences 
are condemned to remain abstract idealism, forgetting that the most powerful 
force or current in our cosmic life appears to be lodged in the clouds, and that 
when it descends from those heights, cleaving the atmosphere, there are no 



APPENDIX II 73 

obstacles which can resist it, and it penetrates with astral fire, into the depths of 
the earth. 

There was a tendency to calculate the results of truth and justice by evidence 
that can be counted, weighed and measured among the everyday onlookers of 
the Congress of 1907. A chorus of detractions, scoffings and epigrams were 
voiced against the work, which they judged most ungratefully. Why? Because 
the second Conference accomplished nothing in the matter of disarmament? 
Because owing to the great number of demands made upon it, it was compelled 
to confine itself to important proposals made through the medium of votes, 
suggestions, and advice? 

However, the 1907 Conference realized, in a measure, the promise of its 
predecessor. The project of organizing a court of arbitral justice did not become 
a consummated fact. This was only because the weaker Powers were not 
willing to agree with the greater Powers in regard to the system to be adopted 
for nominating the members of that tribunal. Will such an agreement be 
impossible in the future ? I do not think so. Time knows no difficulties which it 
cannot overcome with the aid of experience, no knots it does not eventually untie, 
no problems which it does not solve. It was a great truth that inspired the pen 
of my noble friend Mr. James Brown Scott, who, in his important work dealing 
with the Conferences of 1899 and 1907, wrote: "The independence of the state 
is the very postulate of international law ; but the solidarity of interest has made 
itself felt to such a degree that nations have yielded and must in the future 
yield something of their absolute liberty and independence, just as a citizen 
yields his absolute freedom for the benefit of society, of which he is a part." 

Once this question is defined, however, that obstacle being resolved into a 
formula whereby in each transaction the rights of one class will be harmonized 
with the pretensions of the other, all other obstacles become secondary ; therefore, 
except in regard to the prerequisite, the second Conference agreed upon a consti- 
tutional body ready to enter upon the work conceived by the institution, to 
exercise over the universal society of nations powers analogous to those of the 
federal Supreme Court in the United States. 

But this was not the only result arrived at by the second Conference. Its 
efforts to conclude a universal arbitration treaty were frustrated. All the na- 
tions, however, were signatories there to the most solemn of acts, declaring 
themselves unanimous in recognizing the principle of obligatory arbitration, 
realizing that certain differences, more especially those relating to the inter- 
pretation and application of international conventions, are subject to the rule of 
obligatory arbitration without any restrictions whatsoever. Now there is not a 
single person living who will not feel that at the 1899 Conference it would have 
been impossible to obtain the consent of the Powers represented at The Hague 
to this ruling on the two declarations whereby the sovereign Powers, in the 
interests of justice, yield such an important point. 



74 MR. BACON'S VISIT TO SOUTH AMERICA 

Eight years was the length of time required to achieve this incalculable 
advance in the path of the reconcilement of Powers by means of laws. It 
is solely due to the diplomatic manner in which the conquest was achieved, that 
the revolution that was effected in the law of the rights of the people, and the 
sentiments of the most powerful nationalities, was not perceived. 

The critics, who at the close of this glorious Congress amused themselves 
with minimizing the importance of its accomplishments with caustic expressions 
of contempt, took the trouble to "estimate the cash cost to the various govern- 
ments, as also to the press, entailed by this second Peace Congress, and their 
estimate, which was more or less arbitrary and covered all expenditures, amounted 
from four thousand five hundred to nine thousand contos, an amount which, in 
the opinion of these same judges, had thus far hardly been spent profitably. But 
an American diplomat of recognized repute, whom I knew at The Hague, and 
who at the time was rendering valuable services to the Chinese delegation to 
which he was attached, Mr. John W. Foster, in his Memoirs, which were published 
three years ago, scouted this idea of futility, saying that even if the estimate 
were admitted to be more or less correct the amount was barely one-third of 
what an armed battleship would cost. 

Moreover, any Power even among those whose financial resources are most 
limited will without hesitation willingly indulge in the luxury of increasing 
expenditures three-fold or six-fold in order to have as a preventive (even though 
there may be no probable danger of war) one or two of those machines whose 
powers to-day are questioned when the multiplicity of submarine and aerial 
weapons that science has created for the extermination of entire fleets and 
armies, is taken into consideration. 

Ivet us see now what are really the fruits, the practical results and actual 
benefits that have accrued from the last meeting of the nations at The Hague. 
They were the convention of October 18, dealing with the pacific settlement 
of international disputes, the establishment of the new regime for the appointment 
of the Commission of Investigation, the establishment of an International Prize 
Court, the adoption of new laws relative to the usages of war on land and on 
sea, the protection of neutral commerce in time of war, the establishment of a 
permanent Court of Arbitration. All this in barely four months' time, quite 
apart from the complexity and multiplicity of incidental matters, represent a 
complete circuit of international questions. 

Would it be reasonable to demand that its activity should have been greater, 
that it should have discovered a means of compelling the powers to refrain from 
further military armaments and definitively to substitute Arbitration for War? 
No one with common sense would so declare. In judging the merits of a human 
remedy, we must not only note the benefits it affords, but the possible dangers 
that it prevents. 

The First Peace Conference did not prevent Russia, who took the initiative, 
from being involved in a most disastrous war with Japan in 1904- 1905. The 



APPENDIX II 75 

Second Peace Conference did not prevent the war between Italy and Turkey, nor 
yet the war between Turkey and Greece and the Balkan States. But still, side 
by side with these occurrences, which must be discounted as something still 
inherent in human nature, we should, in all justice, give full and due credit, 
commensurate with the difficulties opposed, to those relations of solidarity, both 
in a moral and material sense, in the development of which the two Conferences, 
1899-1907, have contributed more than any other influence in the history of 
nations. 

In this connection, the President of the Second Conference said in his address 
at the close of the work : "This Conference has made the greatest progress that 
has ever been witnessed by a human being." The same testimony was given a 
little later by an authority that is practically unrivalled, Mr. Elihu Root : "The 
work of the Second Hague Conference presents the greatest advance ever made 
at any single time toward the reasonable and peaceful regulation of international 
conduct, unless it be the advance made at The Plague Conference of 1899. l' ne 
achievements of the two Conferences justify the belief that the world has 
entered upon an orderly process through which, step by step, in successive 
Conferences, each taking the work of its predecessor as its point of departure, 
there may be continual progress toward making the practice of civilized nations 
conform to their peaceful professions." 

It cannot be understood how the impression should have crept into the 
minds of the most enlightened that the Second Peace Conference should have 
vindicated itself ere terminating its deliberations by promulgating a general 
disarmament and the abolition of war. It was more or less in line with this 
test that the adverse critics of that Congress of sovereign Powers framed 
their views, forgetting how at variance these are when considering the question 
of the value of Legislative Assemblies. In every country, year after year, large 
bodies meet in deliberation, which deliberations are governed by universally 
recognized parliamentary rules and prescribe the form for satisfying public 
demand by means of arbitrary resolutions, remedying all existing evils in general. 
Notwithstanding the fact that these collective bodies exercise full control over 
their proceedings, which are facilitated by well defined principles, and which 
provide for the closing of a question by a vote of the majority, nevertheless, 
year after year, the work of the legislature is renewed without its having either 
cured the prevailing social ills or having satisfied the demands of the public; — 
yet, withal, no one contests the attitude of the legislature or its usefulness, or 
deems it unnecessary to the government of States. 

In this respect constituent assemblies are the same as parliaments. No one 
has as yet discovered a system whereby every problem related to liberty and 
good government in every nation can be solved. It is only at intervals of 
generations or centuries that great changes in the fundamental laws of States 
take place. According to Ames, whose work is dated 1897, the number of 
amendments offered up to that time to the constitution of the United States 



76 MR. BACON'S VISIT TO SOUTH AMERICA 

reached one thousand seven hundred and thirty-six, whereas only fifteen of these 
had been adopted. In Brazil it took ninety-seven years to bring about the triumph 
of the Republic in 1889 for which the unfaithful of Minas conspired in 1792 
and lost their lives. 

So that, in considering the internal life of States, we see that the efficiency 
of the legislator only makes itself felt by tact, postponements and compromises, 
and with fragmentary, slow and uncertain results. Why, then, should we be impa- 
tient because in only eight years time, the period that elapsed from 1899 to 1907, 
a council of independent and sovereign nations, unrestrained by the law of 
majorities, did not reach a definite agreement as to the means for ending or resolv- 
ing conflicts without the rule of war, a rule, which since man became a rational 
being has been the rule of rules of this world? 

In the inestimable work of Mr. James Brown Scott, to which we have already 
referred, there are three or four pages of admirable reasoning setting forth 
clearly and convincingly the similarity between the organic process of development 
in the common law of England and that which can be observed in the common 
law of nations. Now that, for the first time, the attempt is being made to 
codify this law, legislative efforts, according to the general opinion, will be 
based upon great legal principles that have been elaborated by a process of 
long development and upon which we may well rely for the requisite foundation 
for the international justice of the future. But though we may not have reached 
that stage as yet, and may still have to cover considerable ground to reach the 
point when civilization will not resort to warfare, nevertheless, that which has 
already been accomplished during the past fourteen years, through the medium 
of The Hague Tribunal and the development of arbitration, is a prodigious and 
fortunate advance, considering the means employed and the advantages derived. 

If, as Mr. EHhu Root, with his accurate judgment and clearsightedness, 
remarks, "the most valuable result of the Conference of 1899 was tnat ^ made 
the work of the Conference of 1907 possible," we may likewise maintain to-day 
that one of the greatest blessings resulting from the 1907 Conference lies in 
our having created for the modern world the necessity, which can no longer 
be ignored, of availing ourselves of the inspiring sentiments of international 
solidarity which have been created by these two Conferences. A third result 
was to approve the purpose of the last two Conferences by convoking another, 
in accordance with the provisions of the second Conference ; and as the celebration 
of a third Conference will demand certain preparatory work which, according to 
the provisions of its forerunner should begin two years in advance of the actual 
meeting of the third Conference, the present time would appear most opportune to 
arouse the skeptical and forgetful, and to inspire the initiative of those who can 
give to the matter the intricate study which should precede this great event. 

As far as I can judge, such an appeal would meet with unanimous approval 
from us, and this would be true, I presume, of the other countries in every sec- 
tion of our continent to whom President Nelidow, in recapitulating the work 



APPENDIX II 77 

accomplished by the Conference in his closing address, paid the following hom- 
age : "The association with representatives from Latin America in our sessions 
has unquestionably added new elements of great value to the fund of inter- 
national political science, — elements, the value of which, up to this time, we 
have failed to appreciate, except to a very imperfect extent." 

To the Government of the United States, above all others, is no doubt 
due the convocation of the Second Peace Conference. It was President 
Roosevelt, who, with his peculiar characteristic constructive activity, influenced 
successively by the great foresight and the political capacity of his two 
Secretaries of State, Mr. John Hay in 1904 and, more particularly, Mr. Elihu 
Root in 1905, was the first Chief of State to grasp the idea and under his leader- 
ship, to have it carried into effect, putting an end to the Russo-Japanese 
war by the interposition of his good offices and the Treaty of Portsmouth. It 
was through his master stroke alone, as revealed in the memorandum addressed 
by Mr. Root to the Russian Ambassador under date of October 12, 1905, that 
this glorious initiative was suggested to the chief of the Empire which had been 
vanquished in the disastrous struggle. 

To-day we find at the head of the Government of the United States a 
representative of the very highest type of American culture, of its intelligence, 
its democracy, its well-understood and well-defined liberality, of its solidarity 
with the interests of the whole civilized world. Brazilian thought has already 
become familiar with the name of Woodrow Wilson, in whom we jurists here and 
our men of letters have long since admired the historian, the constitutionalist, the 
political writer of rare endowment, whose works have so greatly enlightened us. 
We need no further guaranty to believe that, under his generous and able guidance, 
the glorious precedent of ancient tradition which so greatly honors the colossus 
of North America will again shine forth. 

I am not quite sure, gentlemen, whether I am treading on safe ground, but 
as my words are absolutely devoid of official significance, as are those of our 
distinguished visitor, Mr. Robert Bacon, I am bold to say what I feel with 
my own natural frankness as a mere Brazilian citizen, a member of the human 
family, a friend of philosophy, whose taste of political life has not harmed him. 

I did not wish to detain you so long in traveling over a path which has such 
seductive byways. It was my intention, when accepting the invitation to address 
you to-day, to confine myself merely to our illustrious emissary of American civil- 
ization and assure him of our cordiality and friendship, and after opening the ses- 
sion with a few appropriate words to leave him in entire control. But a certain 
mandate that I could not ignore compelled me to forego my intended restraint 
and brevity. Reminiscences of The Hague have diverted me from my course. 
At the outset it was my intention to recount these by narrating them as they 
referred to the various phases of the mission of good tidings of which Mr. Robert 
Bacon is the bearer; but from last night almost until dawn I could not restrain 
my pen. 



78 MR. BACON'S VISIT TO SOUTH AMERICA 

Thus there remained no time for me to tell you all that I should relative to 
the great institution of wonderful, universal good, its program, its organi- 
zation and work, all of which was so vividly described the other day in the 
address of the illustrious representative of the Carnegie Endowment. 

Thanks to the conception of that singular philanthropist who has devoted 
his fortune to the benefit of his neighbor, there will not be wanting during the 
intervals between the Peace Conferences, the stimulus which keeps alive the flame 
of the sacred fire. Now, the stimulus and the impulse radiate from a permanent 
focus filling the intervals between successive congresses of universal peace with 
a continuous effort of the workers in the cause of justice, organized into an 
association of intellectual attainments, whose arms will, within a short time, 
encircle the civilized world. 

Mr. Robert Bacon, who has been sent to Brazil as an emissary from the Car- 
negie Endowment, "of which Mr. Root is the heart and soul," may rest assured 
that the "message of good will," which mission at this most auspicious hour has 
brought him to the hearth of the Brazilian family, enters our heart as the much 
needed dew for the seed of ideas, and will find there the warmth that is necessary 
to germinate the seed. 

I do not know up to what point it will be proper, without presumption, for 
me to speak for my fellow citizens, who have all been breathing unconsciously the 
same air as I from infancy. But if I have not as yet lost that contact with the 
conscience of my compatriots, I can assure you that we are with you in the 
communion of international peace, and we shall consider ourselves fortunate 
whenever an occasion shall call upon us to place ourselves at your side in line 
with the latest workers for the cause to which you have consecrated yourself. 
You opened your address the other day with a description of resplendent 
eloquence and poetry of the marvelous picture that presented itself to your mind 
upon arrival here and entranced you as you beheld the city under a blue, 
star-lit sky, and the smiling morn disclosed to you the green waters. You felt 
that from out all this, there must pass to those who dwell amid the gardens 
and the hills, between the heavens and the waters a continual stream of inspira- 
tion of never ceasing courage and energy. 

Would to God, that we, in this Eden, may be permitted with dignity and 
harmony between man and nature to impress upon this terrestrial city the image 
of the ideal city, the city of virtue and truth, the city of God, and see it spread 
out and receive from the North those breezes, heavy with the pollen of that free- 
dom which was sown on the shores of New England, almost three hundred years 
ago by the exiles of the Mayflower, and which, thus far, has never failed to 
reproduce new blooms, each more productive than the last, in the shape of institu- 
tions, men, ideas, permeated with that love of justice which converts the Roots, 
the Bacons and the Scotts into apostles and missionaries in the cause of the gospel 
of humanity and sends them forth to teach the world the Doctrine of Peace. 



APPENDIX II 79 

Response of Mr. Bacon 

[Translation from the French'] 

Monsignor, Excellencies, Ladies, Gentlemen: 

I can not tell you how sensible I am of the great honor done me to-day by 
the Brazilian Academy and the Institute of Lawyers. I am, I assure you, deeply 
touched by this new mark of courtesy that you have shown by inviting me to be 
present at this meeting, held under the auspices of your famous intellectual 
leaders. 

I thank you from the bottom of my heart for the flattering words — so little 
deserved — that you have addressed to my humble self. I wish that I could express 
to Your Excellency my gratitude for the sentiments of friendship which you have 
just expressed for my country and my friends. 

Two days ago I tried to tell you in a few words something of the spirit, the 
inspiration, the hope with which Mr. Root granted me the privilege of coming 
to speak to you in his name of the work, the convictions and the hopes which he 
holds most dear. A hesitancy, a fear, indeed, that I should not prove worthy 
of his confidence, has given way to joyful gratitude for the gentle sympathy, the 
kindly good will of your welcome and your responsive reception which I appre- 
ciate most deeply and which will always be one of my most precious memories. 
I shall never forget your charming hospitality. 

I regret that to-day I find myself confined to details that are somewhat dry 
and, I fear, rather uninteresting, at a moment "when, under the charm and 
inspiration of your eloquent words, I would prefer to dwell upon our ideals, our 
hopes. For I am proud to share your optimism, sir, and I have an abiding con- 
viction that, despite the clouds gathered by mistrust and unbelief, we are at the 
beginning of a great progressive movement in the liberalizing evolution of the 
world and that from afar we may see the dawning of a brighter, purer day. 

The principles, the philosophy of the last century are no longer sufficient 
to our needs. We must have new rules of political economy, new principles of 
international law. 

The gentlemen whom I had the privilege of addressing two days ago, did me 
the honor of asking for fuller details concerning certain objects of the Endowment. 

To accomplish the objects of the Endowment the work has been organized 
in three divisions : 

The Division of Intercourse and Education ; 

The Division of Economics and History; 

The Division of International Law. 

In regard to the Division of Intercourse and Education it was evident that 
the work of this Division would necessarily affect foreign countries and it was 
essential to the success of the work that it be done in foreign countries by local 
agents rather than by branches of the Endowment. As it was impossible to 
determine at long range what should be undertaken, as well as the method of its 



80 MR. BACON'S VISIT TO SOUTH AMERICA 

execution, without the advice of competent and experienced leaders of thought 
of the different countries, Dr. Butler, Director of the Division, created an 
Advisory Council of representative European statesmen and publicists, and a 
body of correspondents upon whose advice and sympathetic co-operation he can 
always safely rely. 

From this large Council, composed of approximately forty members, a 
small Executive Committee has been formed (both Council and Committee being 
under the presidency of Baron d'Estournelles de Constant) and a European 
bureau has been established at Paris. 

We have wondered whether it would not be agreeable to leaders of thought 
in Latin America to create an organization somewhat similar to the General 
Advisory Council which has already been formed in Europe, and to co-operate with 
their fellow countrymen in carrying out the plans and undertakings which they 
may consider advisable or useful in their various countries. 

The Division has adopted the rule not to undertake work in any European 
country without consulting the Council or without the approval of the members 
of the Council representing that particular country. 

There is no need of more than a brief mention of the projects which the 
Division has undertaken. In the first place, in order to educate public opinion, 
the Division has taken measures to enlarge the contents and to increase the circu- 
lation of a selected list of European periodicals devoted to international peace, to 
cultivate friendly feelings between nations and to increase their knowledge and 
understanding of one another. 

The Division has inaugurated an exchange of visits of reperesentative men 
and an educational exchange with Japan, and the Director of the Division hopes 
to make arrangements for an educational exchange between the United States 
and Latin America that shall comprise professors as well as students. I have 
the honor to inaugurate the first of the series of international visits with our 
sister republics, and I hope to be able to obtain information and advice from 
leaders of thought in South America which will enable us to begin in the very 
near future a mutual exchange of professors and students. 

I am instructed to suggest that the exchange begin by the annual visit of 
two eminent South American scholars or publicists to the United States and 
two North Americans to South America. Each of these men would divide his 
time between two universities in the country he would visit. I would like very 
much to have your opinion regarding the choice of professors and also the 
choice of universities to which they should go. 

The Endowment will provide for the expenses incident to this exchange 
of professors. 

It is unnecessary to dwell upon the wisdom and timeliness of these projects, 
for it is common knowledge that many of the misunderstandings existing be- 
tween nations are the result of ignorance of local conditions, traditions and 
ideals. Personal intercourse reveals that at bottom all men are strangely alike, 



APPENDIX II 81 

and personal contact, discussion and exchange of views lay the indispensable 
foundations for friendship and good understanding. 

One of the activities to which the Endowment attaches much importance 
is the organization throughout the world of Associations for International Con- 
ciliation. 

Experience has shown that many people genuinely interested in bringing 
about good understanding with foreign countries nevertheless hesitate for a 
variety of reasons to ally themselves with Peace Societies. Associations for In- 
ternational Conciliation appeal to these classes, and it is the policy of the En- 
dowment through the Division of Intercourse and Education to strengthen 
these Associations where they exist, and to co-operate so far as may seem de- 
sirable in their creation where they do not exist. 

The parent Association was formed by Baron d'Estournelles de Constant 
in Paris some years ago. The branch in the United States, of which Dr. Butler 
is President, was organized in .1906; the German and English Associations were 
organized in 1912, and I am directed by my instructions to invite the co-opera- 
tion of interested persons in the countries which I have the honor of visiting 
to organize branches of international conciliation to be connected with the parent 
Society at Paris. These Associations, while local in origin, have nevertheless 
an international mission and tend to create by their meetings and the excellent 
pamphlets which they regularly issue, a friendly feeling towards the peoples 
of foreign countries. 

Allow me to explain the purposes of the Societies for International Con- 
ciliation in the language of the founder of the parent society in Paris. In an 
article which he has had the kindness to prepare on this subject, Baron d'Estour- 
nelles de Constant says : 

The Association for International Conciliation is not a sentimental, 
humanitarian organization. It is a practical, patriotic advance, in the national 
interest of each country, particularly of young countries which must con- 
secrate all their forces and resources to their own development. Its object 
is to ensure security for the morrow to the business and the working world 
— to the farmer, the manufacturer, the merchant, as well as to the artist 
and the scientist — and to make it possible to undertake works looking to 
the future. 

Conciliation is today the indispensable complement of economic effort 
in every civilized country. To increase national prosperity by the promotion 
of good international relations; such is our object, summed up in our motto: 
Pro Patria Per Orbis Concordiam. 

Wars of conquest are no longer profitable. They engender only hatreds, 
reprisals, the burdens of an armed peace that grow more crushing every 
day; and these burdens have become among the masses the strongest of 
arguments in favor of socialism and revolution. 

Wars of independence alone are honorable, but no one threatens the 
independence of the American States. They will become more powerful 
by understanding each other than by arming themselves against each other. 



82 MR. BACON'S VISIT TO SOUTH AMERICA 

Arbitration, on the contrary, has demonstrated its value in the Ala- 
bama, Hull, Casablanca, Behring- Sea, Newfoundland fisheries, and other 
cases. 

Undertake arbitration rather than war, but always prefer conciliation 
to arbitration. 

Such is our idea, our rule of life. 

I would sum it up as follows : 

War rather than slavery. 

Arbitration rather than war. 

Conciliation rather than arbitration. 

Arbitration cures ; conciliation prevents. Conciliation substitutes fruitful 
co-operation for sterile antagonism. 

How should conciliation be organized? 

Little by little. Maternally; by the co-operation of the few men who 
know the world and life, former diplomats, former Ministers of State, retired 
manufacturers, savants, artists, philanthropists; men of proved good will. 

A more or less numerous elite of such exceptional men exists in every 
country. Seek out these chosen few, explain to them the benefit, the necessity 
of conciliation, and, that done, put them in touch with similar groups in 
other countries. These groups brought together will undertake the education 
of the masses. 

Our methods of procedure are: 

i. Personal visits, intercourse and correspondence between men, between 
countries, between peoples, between parliaments, between organizations. 

These methods have produced results; by means of them we have 
brought together enemies supposed to be irreconcilable. 

2. Publications, lectures. We publish bulletins ; we recommend or sug- 
gest literary works ; we travel and we exchange our experiences ; we spread 
our ideas in spite of obstacles or unfavorable circumstances. _ We do every- 
thing in our power to remove prejudices, preconceived opinions, ignorance, 
and to supplant them gradually (with the same benefit that would follow in 
trade) by mutual confidence, credit and, finally, international friendship. 

To express in a single phrase the difference between Pacifist Societies and 
Societies for Conciliation it might be said that Pacifist Societies are composed 
of pacifistes — whatever meaning we attach to this word — while the Societies 
for Conciliation are composed of pacifiques, which is a broader and, apparently, 
much more acceptable term. 

I should, indeed, be happy if I were able to persuade some of the elite in 
the different countries I have the honor to visit, to form national societies for 
International Conciliation to be affiliated with the parent society. Of course, it 
is understood, that this is a moral not a legal, affiliation, and that each society 
is independent. And I take pleasure in informing you that in this as in other 
cases, the Endowment will undertake to pay the expenses incurred in the 



APPENDIX II 83 

organization of these societies and to supply the funds necessary to obtain the 
services of capable, energetic, devoted and persevering secretaries upon whom 
the usefulness of the societies will depend. 

Let me now describe the work of the second Division, that of Economics and 
History. 

The work of this division is "to promote a thorough and scientific investigation 
and study of the causes of war and of the practical methods to prevent and 
avoid it" — that is to say; the study not only of the apparent causes which are 
often only pretexts serving ambitious and unscrupulous heads of states, but also 
of the real, and often hidden causes which one finds in race antagonisms and 
in interests of an economic nature. It is necessary, moreover, to study the causes 
and the economic effects, not merely upon belligerents but upon neutrals as well. 

The Trustees felt it to be well nigh impossible to formulate by themselves 
plans calculated to promote a thorough and scientific investigation. A conference 
was arranged at Berne, Switzerland, in August, 191 1, to which distinguished 
economists and publicists, drawn largely from Europe, were invited, to consider 
what subjects could properly and profitably be studied and to draft a tentative 
program for the Division. 

Eighteen economists and publicists attended the Conference and their advice 
and co-operation were considered so important, indeed indispensable, to the success 
of the Division that they have been formed into a permanent Committee of 
Research, to advise the Director and to act as the agents of the Division in 
carrying out the projects recommended by the Conference and embodied in its 
elaborate program, which deals with questions concerning the economic and 
historical causes and effects of wars, armaments in time of peace, military and 
naval establishments, the theory, practice and history of modern armaments and, 
finally, the unifying influences of international life. 

A large number of topics have already been assigned to specialists selected 
from the countries to which their work relates, some of the studies have been 
completed, and, in the course of a few years, the Endowment will have published 
a series of remarkable monographs, covering all phases of the elaborate pro- 
gram, which will, it is believed — to quote the language of Mr. Root — "be useful 
to mankind." 

Professor Kinley, an old and sincere friend of Latin America, who 
represented the United States at the Fourth Pan-American Conference held in 
Buenos Aires, has been appointed a member of the Committee of Research, 
and will devote himself more especially to the problems in which Latin America 
is interested. In the course of the coming year, he will visit Latin America to 
confer with the leaders of opinion, to obtain their advice and, if possible, to 
secure their co-operation, both in suggesting projects and in executing those 
which they may recommend. 

The third Division of the Endowment is the Division of International Law. 

This Division, like the others, found it necessary to create a special 



84 MR. BACON'S VISIT TO SOUTH AMERICA 

organization and to secure a body of legal advisors, in whose conclusions in the 
sphere of law the Trustees can place implicit confidence. 

The Institute of International Law is composed, it is hardly necessary to 
state, of the leading jurists of all nations, and the Endowment requested the 
Institute, either as a body or by means of a Committee, specially chosen for 
the purpose, to act as advisor to the Division of International Law. The 
Institute accepted the invitation and selected a Committee of eleven members, 
at its meeting in Christiania in 19 12, who have acted during the present year 
as advisors to the Director, and this Committee, technically known as the Con- 
sultative Committee for the Carnegie Endowment, drew up a regulation, which 
has been accepted by the Institute, by means of which the relations established 
between the Institute on the one hand, through its Consultative Committee, and 
the Endowment on the other, through its Division of International Law, are 
to be permanent. 

The committee consists of eleven members. The President and the Secretary 
General of the Institute are members ex officio, and the others are elected to serve 
for a term of years. It is to be noted that the members of this Committee are 
men of great experience and high authority in all questions of international law : 
Messrs. Fusinato of Italy, Gram and Hagerup of Norway; Holland of England; 
Lammasch of Austria; Lardy of Switzerland; Renault of France; Rolin of 
Belgium, and Vesnitch of Servia. The importance of this Committee of juris- 
consults and the value of the advice which they can render cannot be over- 
estimated. 

As tending to establish a better understanding of international rights and 
duties, the Division of International Law grants material assistance to journals 
of international law in order to increase their circulation and to extend their 
influence, because, by this means, international law is popularised and the public 
is shown by concrete example how the principles of international law determine 
questions of international rights. In the same way, it is the intention of the 
Division, upon the recommendation of the Consultative Committee of the Insti- 
tute, to aid in the distribution of important works of international law and, 
especially, to have translated into better known languages works which are of 
very great importance and usefulness but which are published in languages not 
widely read or understood. 

To promote the general acceptance of peaceable methods of settling interna- 
tional disputes, the Division has under way several works ; the first is the collection 
and publication of all general and special treaties of arbitration. In regard to 
the treaties of the nineteenth century especially, the Endowment would be very 
grateful to the publicists of Latin America if they would supply information 
concerning any such conventions of which they have knowledge — the only knowl- 
edge perhaps; — and the Trustees would regard it as a very great favor if the 
governments of Latin America would supply copies of such treaties, as it is very 
difficult at times to secure texts which are thoroughly accurate and reliable. 



APPENDIX II 85 

This collection will enable publicists to see to what extent nations have been 
willing to bind themselves to arbitration, and the various forms of existing 
treaties will be placed at their disposal. For a like reason all known instances of 
international arbitration are to be collected and published in the form of judicial 
reports and the series will be continued indefinitely. The well-known authority 
on International Law and Arbitration, Professor John Bassett Moore, lately of 
Columbia University, and now' Counselor for the Department of State of the 
United States, has undertaken this monumental work and is actively engaged 
upon it. 

The Institute of International Law which now acts as adviser to the 
Division of International Law was founded in Europe in 1873, but, although the 
Institute represents "the universal juridical conscience," many jurisconsults have 
felt the need of an institution which should represent the juridical conscience of 
America, study the problems which concern particularly the New World and 
examine from an American point of view general matters relating to the law of 
nations. 

As you are well aware an American Institute of International Law was 
founded in 1912 by Senor Alejandro Alvarez of Chile and Dr. James Brown 
Scott, director of the Division of International Law of the Endowment. This 
Institute contemplates the formation of National Societies of International Law 
in all American countries to be affiliated with it and to work in harmony with 
it for the study of American problems. 

The American Institute of International Law is to be composed of five pub- 
licists from each of the American Republics chosen from the members of the 
National Societies and each member of the National Society is, by virtue of such 
membership, entitled to enroll himself as an Associate Member of the Institute 
and to participate in its labors, upon payment of the modest dues which mem- 
bership in the Institute entails. It is to be hoped and we believe that in this way 
the International Society will be kept in close and intimate contact with the Na- 
tional Societies, that the American Journal of International Law will be modified 
in such a way as to become the organ of the Institute and of the publicists of the 
Americas, and that the Bulletins which it is contemplated that each of the local 
Societies will issue, will keep the Institute itself in touch with the work of the 
National Societies, and that by the distribution of the Bulletins among the dif- 
ferent societies, each will keep in touch with all the others. 

It is unnecessary for me to dwell upon the importance of the Institute and 
of the National Societies, because to all those who believe that international peace 
is only possible through international law and its application to the foreign rela- 
tions of nations, it is evident that Agencies, created to develop and render this 
system of law adequate to meet the needs of nations and to disseminate its princi- 
ples so that an enlightened public opinion may be formed which will insist upon 
the application of those principles to the relations of nations and to the settle- 
ment of their disputes, will render great and inestimable services, for the future 



86 MR. BACON'S VISIT TO SOUTH AMERICA 

of international peace is wrapped up with international law, its development, 
its dissemination. 

Supposing that the American Institute is fully established and justifies its 
existence, and that the national societies of International Law are created and 
affiliated with it, we cannot help asking ourselves whether the American Institute 
would not be willing to enter into advisory relations with the Endowment and its 
Division of International Law in all matters concerning American questions and 
problems similar to the relations which so happily exist with the older Institute. 

Lest I should seem to state in exaggerated language the aims and purposes 
of the American Institute of International Law, of which Mr. Elihu Root is 
Honorary President, let me quote a passage from a distinguished Dutch scholar 
and professor of international law, who may be supposed to treat the subject 
with more detachment. 

After having spoken of the great example America has given to the world in 
undertaking the codification of international law, he says : 

"The second example is given to us by an Institute essentially scientific but 
scarcely inferior in moral value. The gradual drawing together of the North 
and South has created a new instrument of progress. The projects for a 
Pan-American Union, started long ago without ever yielding results, have at 
last borne fruit in the peaceful field of study, thanks to the talent and perseverance 
of two illustrious men, one from the northern, the other from the southern half 
of the Western Hemisphere. During the past year Mr. James Brown Scott, the 
noted jurisconsult of the United States, and Sefior Alejandro Alvarez, former 
professor and Counselor in the Ministry of Foreign Affairs of Chile, who in June, 
1912, at Rio, exercised a most beneficial influence upon the great plan for codi- 
fication, met at Washington, and founded in October, 19 12, the American Institute 
of International Law. This Institute has for its objects: 1. To aid in the 
development of international law; 2. To strengthen the common sentiment of 
international justice; 3. To procure a general acceptance of peaceful procedure 
in the settlement of international disputes between the American States. 

"This enlightened idea sprang from the conviction that it is better to spread 
conceptions of right and justice by a slow but constant appeal to the minds and 
hearts of people than by diplomatic negotiations which are not based on a general 
popular sentiment. 

"If we take into consideration the fact that the peace movement in America 
is much more general than elsewhere and that it rests on a religious foundation 
or on a community of interests and of tendencies that we well may envy, we 
can appreciate this new proof of a virile progress which is brought to us from 
the other side of the ocean; it gives new life to our hopes and redoubles 
our efforts." 

Mr. Root and his associates attach the highest importance to the establish- 
ment and successful operation of the American Institute of International Law 
and of its affiliated societies in each of the American countries. 



APPENDIX II 87 

The Endowment now grants a subvention to the older Institute, founded in 
Europe. This subvention is designed to cover the traveling expenses of members 
of the Institute, the expenditures of the commissions and the publication of their 
works. The new Institute can count upon receiving financial aid from the Endow- 
ment as soon as the National Societies are thoroughly organized and it will be 
upon an equal footing with the older Institute in this respect. 

The American Journal of International Law, which, with some slight modi- 
fications, might become the organ of the American Institute, receives now an 
annual subvention from the Endowment. 

Another institution in which the Division of International Law is greatly 
interested and which it will subvention and maintain with much pleasure is the 
Academy of International Law which it is proposed to establish at The Hague. 

A proposal was made at the Second Hague Peace Conference to create an 
academy of international law, and it was commended by the president of the Con- 
ference. No action was then taken, but the idea has commended itself to pub- 
licists of many nationalities. A committee of Dutch publicists, under the presi- 
dency of Mr. Asser, whose recent death we all deplore, suggested that such an 
academy be created and installed in the Peace Palace at The Hague. 

The Permanent Court of Arbitration would apply the law which had been 
systematically expounded in the academy, and the magnificent building which was 
officially opened last August, would indeed become a temple of peace, a Home of 
International Law. 

Mr. Asser's proposal contemplates systematic instruction, during the summer 
months, in international law and cognate' subjects by a specially constituted and 
changing faculty, to be chosen from publicists of different countries. Courses of 
lectures on important and timely subjects would be given by publicists who, in 
addition to long theoretical training, have had large experience in the practice 
of international law. Seminars, under the direction of the regular professors, 
would be created for the detailed and exhaustive study of certain phases of inter- 
national law and international relations. The courses would be open to students 
of all countries who possess the necessary qualifications, and who would be able 
to attend and to profit by the instruction given, as it would be, during the academic 
vacation. 

It is also proposed that the governments should be interested in the academy 
and invited through diplomatic channels to designate appropriate officials of 
various branches of the governmental service to attend its courses. 

The Institution would be unique in its summer sessions, unique in its small 
and changing faculty, and unique in its student body, drawn from foreign coun- 
tries and from official classes. The lectures, published as monographs, would en- 
rich the literature of international law; the law itself would be treated from vari- 
ous points of view and by competent teachers, of whom but one at a time would be 
selected from any country. The student body would be drawn from various 
countries and in the course of time would exercise influence in their home coun- 



88 MR. BACON S VISIT TO SOUTH AMERICA 

tries, so that the Academy would be eminently helpful to establish a better under- 
standing of international rights and duties and to disseminate the principles of 
justice. 

The Academy would, if organized, be a separate and independent institution, 
under the control of a specially appointed committee or curatorium, composed in 
the first instance of past presidents of the Institute of International Law. Thus 
organized and operated, it would advance the work which the Endowment is 
created to further, but it would not be a direct agency of the Endowment or under 
its control. 

It would not seem necessary to go more fully into the advantages of such an 
Academy which appealed to the President and members of the Conference, which 
has been approved by the International Law Association — a more popular body 
than the Institute of International Law — by the Institute of International Law 
itself, by an overwhelming, indeed well-nigh unanimous, vote, and which has 
elicited the warmest commendations from statesmen, publicists and professors of 
International Law in all parts of the world. 

Mr. Root directed me to submit to your consideration the project for this 
Academy and to ask the support of all the Latin American republics, that they may 
designate one or more of their citizens to attend the lectures and follow the 
course of instruction at the Academy when it is established. 

Every one remembers, Mr. President, the notable part you took at the Second 
Hague Conference, the splendid results of which interest in the highest degree the 
Division of International Law as well as all friends of civilization and humanity. 
Your brilliant work is now history; it will never be forgotten. Your eloquence 
and your success at The Hague, Sir, attracted the attention of the civilized world. 
Not only the two Americas, our twenty-one sister republics, but the entire world 
will profit for all time from your noble efforts. 

The Division of International Law, in order that the work of preparation 
for the Third Conference may soon begin, wishes to call attention to the for- 
mation of National Committees. 

It is common knowledge that the Second Hague Peace Conference of 1907 
recommended the meeting of the Third Conference at a period approximately 
equal to that which had elapsed between the First and Second Conferences, that 
is to say, eight years, so that, if the recommendation is carried out, we may expect 
the Third Conference to meet approximately in 191 5. 

It was further provided in the recommendation referred to that about two 
years before the probable meeting of the Conference an international preparatory 
committee should be constituted by common accord among the Powers to collect 
the proposals to be submitted to the Conference, to ascertain what subjects are 
ripe for embodiment in an International Agreement, and to prepare a programme 
to be submitted to the Governments invited to participate in the Conference suffi- 
ciently in advance of the meeting to enable them to be examined carefully and, 



APPENDIX II 89 

finally, to propose a system of organization for the procedure of the Conference 
itself. 

It is evident that the different countries which will be invited to The Hague — 
every country of America was invited to the Second and will doubtless be 
invited to the Third Conference, — should consider all these important matters 
before the constitution of the International Preparatory Committee, and it seems 
advisable, indeed necessary, that each Government should appoint a Committee 
to consider these matters in detail in order that the Governments should be able 
to make their recommendations in the fullness of knowledge. 

As the American Republics will attend as of right the Conference, it would 
seem to be their duty to prepare themselves in advance for active participation 
in its proceedings. They will not perform their full duty if their Delegates merely 
listen to the discussions and occasionally take part in them. The American States 
should do more than this. They should seek to increase the usefulness of each 
successive Conference by making contributions of value, and this can only be done 
if they prepare carefully in advance of the meeting. 

It is not expected that the American States should present a series of joint 
projects to the Conference, or joint recommendations, but it would greatly 
facilitate matters if the different Governments should communicate their views 
so as to reach an agreement upon the subjects which in their opinion should be 
presented and which might form the subject of international agreements. 

Our American States would neglect a great opportunity of usefulness if 
they did not appoint National Committees of their own to study the questions 
which should properly be discussed by the Conferences and prepare projects 
dealing with them which, if not adopted by the Conference will, at least, form 
the basis of discussion. 

These National Committees might be formed as soon as possible in order 
that no time should be lost. I cannot commend too highly this matter to your 
careful thought and consideration. 

The eminent French publicist, Professor A. de Lapradelle referred in the 
following terms to the support of the American republics in the preparation 
of questions for discussion at The Hague: "The Second Peace Conference, in 
calling to The Hague all the American States, made it possible to detect, between 
them, lack of harmony on certain points. They have not all the same concep- 
tion, either of the law of peace or of the law of war. How is it possible to convince 
Europe of the correctness of the American point of view if America itself has 
not first been convinced ? And, besides, with what authority will not the American 
proposals be vested when they come not from this or that State but from all the 
American States, which, having studied them in the American Institute of Inter- 
national Law, will have agreed upon them in the Pan-American Conferences?" 

The study, the development and the popularization of international law 
deserve our best efforts. One of the most distinguished statesmen of Europe 
very recently said: "Neither the pure and simple abolition of war, nor the 



90 MR. BACON'S VISIT TO SOUTH AMERICA 

institution of a supra-national State, nor a change of government or social 
organization can make smooth the road to peace and put an end to warlike 
instincts. There is only one road to follow, slow if you will, but sure : the road 
of law, not theoretical and imaginary law, but law that is positive and real. 
A peace which does not come from law, which does not find in law its foundation 
and its guarantee, is valueless; it is not worthy of your sympathies or your 
efforts. It rests upon a weak and trembling foundation ; it depends upon pre- 
carious happenings and is likely at any moment to crumble and fall. It sac- 
rifices that which is of first importance to a condition which is of only secondary 
importance and which has a moral value only in so far as it is the result of a 
reign of law." 

Monsignor, Excellencies, Ladies, Gentlemen: Before concluding I wish to 
express again to you my most sincere thanks for the great honor which has 
been done me by the Brazilian Academy and the Institute of Lawyers as well 
as my profound gratitude for your kind and sympathetic reception. In leaving 
your city, with more regret than I am able to tell you, a city which will always be 
for me one of the wonders of the world, I shall carry away with me sentiments — 
if you will allow me to say so — of very dear personal friendship. I shall therefore 
say not goodby but— until we meet again. 

Letter of Sefior Helio Lobo, 

Accepting the Position oe Honorary Secretary eor Brazil, oe the National Society 

oe International Conciliation, 
Rio de Janeiro, October 9, 191 3 

[Translation from the Portuguese"] 

His Excellency 

Robert Bacon, Ambassador. 

Carnegie Endowment for International Peace. 

Sir: — 

Your Excellency deigned yesterday at the American Embassy to invite me 
in the name of the Carnegie Endowment for International Peace, of which 
you are the eminent representative on a special mission, to act as Secretary of the 
"International Conciliation" in Brazil for this worthy Association which is presided 
over in Paris by Baron d'Estournelles de Constant. 

Having thanked your Excellency, at the time, for the distinguished honor 
conferred upon me, and having assured you how greatly I appreciate it, I beg 
leave now to reiterate what I then stated, and add how sensible I am of the 
marked kindness your Excellency has shown to me. 

It will be for me a means of particular gratification to co-operate with my 
best efforts in this way in a work, the importance of which no one appreciates 
more fully than yourself. 



APPENDIX II 



91 



I shall consider myself fortunate indeed, if in my effort to respond to the 
distinguished trust you have reposed in me, I am able to fulfil the commands 
with which your Excellency and the Association may see fit to honor me. 

Assuring you of my warmest sentiments of highest appreciation and esteem, 

I remain 



Your obedient servant, 

HeXio Lobo= 



APPENDIX III 
Argentina 



Remarks of Dr. E. S. Zeballos, 

At a Dinner Given by Him for Mr. Bacon, 
Buenos Aires, October 15, 1915 

[Translation from the Spanish} 

Gentlemen: 

Mr. Bacon belongs to the select group of Americans who, under the distin- 
guished leadership of Mr. Root, cultivate the diplomacy of enlightenment in 
America and in the world. 

They seek in the esteem held by the world's representative men for one 
another, the natural and American tendency toward respect and conciliation 
between nations. 

We welcome this noble mission to our land. Warm, too, is our greeting 
to its brilliant exponent whose learning and culture will ever live with us. 

Gentlemen: To the United States of America where this intellectual move- 
ment is fostered. 

To the venerable Carnegie, who is showing the world how private fortunes 
should not be confined to satisfying individual pleasures but to promoting the 
welfare of mankind. 

To the illustrious Root, who leads this glorious movement. 

To Mr. Bacon, chivalrous spirit and vigorous mind, who in unofficial capacity 
but with credentials from humanity and science, is realizing in South America 
the noblest and most fruitful mission of the United States. 

Response of Mr. Bacon 

[Translation from the Spanish] 

Gentlemen: 

First of all, I ask you to pardon my boldness in addressing you in the sonorous 
Castilian tongue, so rich and so harmonious, but which, to my deep regret, I speak 
haltingly. Your proverbial kindness assures me that I can count upon your 
indulgence. 

I thank you most heartily, Sir, for the honor you have done me in affording 
me the pleasure of meeting the most distinguished personages of the intellectual 
world of Buenos Aires. I appreciate the flattering words addressed to my humble 
self and the praise bestowed on my country. I assure you that your gracious 
courtesy has touched me deeply. 



APPENDIX III 93 

In addressing you I feel profoundly moved. The warm welcome given me 
and the admiration I have for this beautiful land, make it difficult for me to 
express the sentiments which have filled my soul from the moment I set foot 
on your hospitable shore. 

The eyes of the civilized world are to-day turned toward the Argentine 
Republic. It admires her wonderful progress and everywhere are heard en- 
thusiastic words of praise and predictions of the bright future in store for her. I 
am completing a trip around the world and I have heard recounted in many places 
the wonders of this privileged land. Buenos Aires, superb Sultana of the Rio de la 
Plata, has made an impression on my memory which will never be effaced. I see 
in her not only a large and beautiful metropolis, modeled after the great cities of 
Europe, with the bustling life of her splendid harbor, with the ceaseless stir of 
her stately avenues and the singular attractiveness of her charming people, all 
of which proves the truth of what I have been told, but my eyes, striving to 
penetrate the veil of the future, behold in ecstasy the glorious vision of the 
American Paris, raised through the energy of her people to heights surpassing the 
fondest dreams of the present generation. 

I am happy in having the opportunity to visit your country. I have always 
felt a keen interest in the Argentine Republic; her struggles for freedom, her ex- 
traordinary development, and her splendid future have always held my attention. 
I am delighted to visit the native land of the genius Sarmiento, whose name is a 
familiar one in the United States, from which he took the scheme of the educa- 
tional system which this country has used to such good advantage ; the land of 
the brave Belgrano, illustrious and intrepid leader, and of the stern patriot San 
Martin, whose wonderful military talent and heroic disinterestedness associate 
him in our minds with our own beloved Washington. 

As the representative of the Carnegie Endowment for International Peace. 
I bring you the affectionate greetings of its eminent President and your true 
friend, Honorable Elihu Root, my honored chief, whom I love and whom you, 
gentlemen, I know, also esteem. 

My mission for the Endowment has been referred to as a mission of friend- 
ship and good-will. That is very true and I am proud of it, but since ties of 
friendship already bind us, may we not go further than that ? 

For my part I should like it to be regarded as a mission of co-operation and 
mutual help among old friends with the object of discussing, studying, planning 
practical means whereby we can work together and march forward toward 
progress, toward the ideal of humanity, toward greater enlightenment, for the 
triumph of Right in the world, replacing resort to force by resort to justice; 
toward an international opinion which will be the true sanction of international 
law. 

The noble words spoken by Mr. Root in 1906 at the Pan-American Conference 
represent the sentiment and the ideals of the people of the United States as 
truthfully and as forcefully today as when they were spoken seven years ago, for 



94 MR. BACON'S VISIT TO SOUTH AMERICA 

governments may change, but the sentiments of the people remain the same. I 
like to think of this memorable declaration as the "Root Doctrine" — the doctrine 
of sympathy and understanding, of kindly consideration and honorable obliga- 
tion — and I am proud to be considered worthy to speak of it as a humble 
apostle. 

Since the visit of Mr. Root to your beautiful country in 1906, there have 
been great changes ; marvelous progress has been made in the development of 
international law, of the law of peoples, and in this development the learned 
publicists and jurisconsults of Latin America have played a very important part. 

The scientific development of international law, towards which Mr. Root 
has unsparingly devoted his great gifts, is making rapid strides. It has been 
said that the Second Hague Conference presented the greatest advance ever 
made at any single time toward the reasonable and peaceful regulation of inter- 
national conduct, unless it be the advance made at the First Hague Conference. 

It has been said, too, that the dreams and Utopias of today are the facts 
of tomorrow. The dreams of yesterday are the realities of today. The dreams 
of Rolin-Jaequemyns, Lieber, Calvo, Alcorta and other inspired leaders are 
accomplished facts today; the spirit of their doctrines has become principles of 
our present conduct. 

The Trustees of the Carnegie Endowment believe that this progress can be 
hastened by practical methods. They are convinced that the ideas of the great 
thinkers can be advanced more quickly to the benefit of the world, by uniting 
their efforts in certain well-defined, practical activities. The object of my visit 
is to ask your invaluable support and co-operation. 

Mr. Root, who would leave the absorbing cares of political life to devote 
the greater part of his energies to this cause, feels special interest in certain 
plans of the Endowment which are of greater moment, and he has urged me to 
solicit your co-operation in this task : 

To place the new American Institute of International Law on a sure and 
more permanent basis, by creating in each State of America national societies, 
affiliated with the American Society and forming an integral part of the same; 

The creation of an Academy of International Law at The Hague, each gov- 
ernment to send one or more representatives ; 

The organization in each country of national branches of the Society for 
International Conciliation, established at Paris and of which Baron d'Estournelles 
de Constant is President; 

The creation of new intellectual ties by means of an exchange of professors 
and students between the universities of South America and of the United 
States, as well as through the visits of representative men. 

I hope you will pardon my having kept you so long. On another occasion 
I hope to enter into further details regarding the ideas and desires of Mr. Root. In 
closing I invite you to bestow upon these practical projects your earnest considera- 



APPENDIX III 95 

tion, not only that the bonds of friendship and solidarity between our beloved 
countries may be strengthened, nor merely that there be created an intellectual 
union among the American Republics, but that humanity may be benefited and 
the ends of liberty and justice furthered among the nations of the world. 

Remarks of Dr. Luis M. Drago, 

Introducing Mr. Bacon at the Reception of the Faculty of Law, 
Buenos Aires. October 16, 1913 

[Translation from the Spanish'] 

I have the honor of welcoming and of introducing to the select audience 
gathered to hear him, Mr. Robert Bacon, one of the leaders of thought of the 
United States of America, who has come to Buenos Aires on a mission of 
continental brotherhood. 

Mr. Bacon, formerly Secretary of State of the United States, and her 
Ambassador to France, is to-day a Trustee of the University of Harvard; and 
to the prestige of his clear mind and to his high personal attainments he now 
adds the credentials of special envoy of the renowned Carnegie Endowment for 
International Peace, constituted in the United States for the promotion of peace 
and friendship among the nations of the world. Mr. Bacon, statesman, scholar 
and noted educator, represents the very best of the high intellectual order to 
which he belongs, and is in every way worthy to continue the work of Mr. Root, 
that leader among orators and statesmen of the Western World who accom- 
plished so much in his memorable voyage to Latin America toward promoting 
a better understanding among the peoples of America, pointing out to them the 
vast moral and intellectual heights to be attained through collective effort. 

Mr. Bacon who, in his desire to bring to the South American nations the 
message of friendship sent by the Carnegie Endowment, did not object to a long 
and trying voyage, thus becomes the apostle of the old humanitarian ideal and 
of the spirit of solidarity, justice, respectful consideration and kindly feeling 
which has ever been the inspiring motive of the foreign policy of the Argentine 
Republic. 

On behalf of the Faculty of Law, I take pleasure in welcoming our illus- 
trious guest, and asking him to honor us with an address. 

Address of Mr. Bacon 

{Translation from the French] 

Excellencies, Ladies, and Gentlemen: 

I cannot find words to express my high appreciation of the very great honor 
done me today by the Faculty of Law. 

Believe me when I say that I am deeply touched by the courtesy you have 
shown me in inviting me to attend this meeting, held under the auspices of your 
leaders of thought, and to address you on the subject of my mission. 



96 MR. BACON'S VISIT TO SOUTH AMERICA 

I thank you, Sir, from the bottom of my heart for the all too kind words in 
which you have referred to me and which I so little deserve. 

It is a great pleasure to me to be able to visit, though only for a few days, 
far too short indeed, a few of the nations and countries of South America, for it 
has always been one of my fondest wishes, which as yet I have been able only 
partially to realize, to see with my own eyes your wonderful countries, the marvels 
of your civilization, to meet again the friends whom I have known and loved in 
other parts of the world, and to form new friendships, which will add another 
charm to life, which neither time nor distance can ever obliterate or cloud. I come, 
bearing a message of good will from your devoted friend and great admirer, 
Mr. EHhu Root. It is at his request, anticipated by my own desire, that I have 
the honor to stand before you. I would that I could say to you all that he 
himself would say, if he were present and could greet you with his old friendship. 
Our words would differ perhaps, but the spirit behind them would be the 
same. 

I should like to have you think of me as inaugurating a series of international 
visits, which will follow each other without interruption and turn to our mutual 
advantage, by bringing together authoritative representatives of the social and 
intellectual circles of the North and of the South; and inviting you to cooperate 
in the establishment of international institutions, which will, we hope, become 
centers of good will, and spread and popularize correct and progressive principles 
of international law, on which may depend peaceful international relations, and 
which, in different ways, directly and indirectly, by means of an exchange of 
thought, an exchange of views, and a happy combination of efforts, will succeed 
in strengthening the bonds of friendship, which a common past, common institu- 
tions, and a common goal demand. 

History and nature have created and developed a deep feeling of solidarity, 
not only between the States of Latin America, but also between the Republics of 
the South and the United States. We must endeavor to maintain and strengthen 
this solidarity which, because of its double origin, indissolubly unites the nations 
of the new continent in the past, in the present, and in the future. 

It suffices to glance at the political history of the New World to see the 
constant interest of the United States in the struggle of the States of Latin 
America, first to free themselves from the mother country, and then to defend 
the independence they had won against all attempts at conquest on the part of 
European powers. It suffices briefly to recall that after their emancipation, the 
United States furnished the Latin States with the forms and bases of their political 
institutions, especially of their republican and democratic government, at a time 
when the old political institutions of Europe were far from satisfying the ideals 
of liberty and the social conditions of the two Americas. 

All this glorious past in the history of the New World should strengthen the 
indestructible bonds of solidarity which have united the American nations since 
the beginning of their political life. 



APPENDIX III 97 

Nature fortifies the work of history. The geographical situation of the 
States of the New World has brought into being a series of problems common to 
the States of this Continent, thus creating among them new bonds of solidarity. 
Thanks to the progress of civilization and the improvement in the means of 
communication, America has come today to understand the imperative necessity 
of solving in a uniform manner problems arising from situations and conditions 
peculiar to the New Continent. 

Outstripping Europe, where the great powers meet in conference only at the 
end of war, in order to determine the conditions of peace, all the States of America 
have met in pacific conferences, for the purpose of considering questions common 
to their continent; whence the name and the origin of the Pan-American 
Conferences. These conferences have been most fruitful in their results. A 
number of problems of interest to America have been studied ; important conven- 
tions have been signed, with a view to the development of the social and the 
intellectual life of the New World. Finally, the representatives of the various 
American States have learned to know each other better, and have become aware 
of the many powerful bonds that unite all the American States. 

The sentiments of solidarity and of fraternity, which group the States of the 
New World in a community of interests, must bring forth union and concord. The 
way is already open ; many fruitful results have been obtained. We must therefore 
endeavor to achieve, in an ever increasing degree, good understanding and 
harmony. We must remove especially the misunderstanding on the part of the 
South American States of the policy of the United States. As Mr. Root has 
solemnly declared, the latter country desires more than all else that peace and 
prosperity may reign in Latin America, in order to strengthen and tighten the 
bonds of friendship and fraternity which should unite all the American nations. 

I have the honor to address you, not merely on my own account, but in the 
name of the Carnegie Endowment for International Peace, of which Senator 
Root is the President, and to invite you, in the name of and on behalf of the 
Trustees of the Endowment, to cooperate with us in every way that you possibly 
and properly can. 

In other words, Mr. Root's desire is to awaken, so far as possible, the 
interest and the sympathetic collaboration of the leaders of thought in South 
America and to enlist their aid in the various undertakings that the Endowment 
is seeking to promote, in the interest of better international relations, so that 
they may cooperate in a practical way in the work. 

The esteem and friendship of the Trustees of the Endowment for the peoples 
of Latin America and for the many distinguished Latin Americans with whom 
they have most agreeable relations of personal friendship lead them to hope that 
the work of the Endowment may find in South America collaborators as active 
and as useful as those it has found in Europe. 

Let me quote to you verbatim a passage from the instructions given me by 
Mr. Root, instead of paraphrasing them, as I have done on several former 



98 MR. BACON'S VISIT TO SOUTH AMERICA 

occasions. "You will observe," said he, "that one of the means by which the 
Division of Intercourse and Education proposes to advance international good 
understanding is a series of international visits of representative men. Accord- 
ingly, under the auspices of the Division, directly or indirectly, Baron 
d'Estournelles de Constant of France, the Baroness von Suttner of Austria, 
and Professor Nitobe of Japan have already visited the United States, and 
President Eliot of Harvard University has visited India, China, and Japan, and 
Dr. Hamilton Wright Mabie is now in Japan. Your visit to South America 
comes in this category, but it has a more definite and specific purpose than any 
of the other visits which I have enumerated or which are contemplated under 
the head that I have mentioned, for it is not merely to strengthen good 
understanding by personal intercourse between a representative North American 
and representative South Americans, but it is also to introduce to representative 
South Americans personally the work and purposes and ideals of the Endowment, 
and to invite our friends in South America to cordial and sympathetic union with 
us in promoting the great work of the trust." 

Such is the spirit of kindly feeling and genuine sympathy that has inspired 
my mission. I do not need to tell you that I am endeavoring to fulfil it in the 
same spirit. 

I regret that I find myself today forced to confine my remarks to details 
that are somewhat dry and uninteresting, at a time when under the spell and the 
inspiration of your gracious welcome and of your charming hospitality, I would 
like to speak again and again of our ideals, of our hopes. For I am proud, Sir, 
to share your optimism, and I have an inner conviction that, in spite of the 
clouds gathered through mistrust and skepticism, we are on the eve of a great 
progressive and liberalizing movement, and can perceive afar the dawn of a 
brighter day. 

The principles and the philosophy of life of the past century will not 
suffice. We shall need new laws, a new political economy, new principles of 
international law. 

You have done me the honor to ask me for further details about certain 
projects of the Endowment. 

The work of the Endowment has been apportioned among three Divisions : 

i. The Division of Intercourse and Education, of which Dr. Nicholas 
Murray Butler, President of Columbia University, is Director. 

2. The Division of Economics and History, of which Dr. John Bates 
Clark is Director. 

3. The Division of International Law, of which the Secretary of the 
Endowment, Dr. James Brown Scott, is Director. 

As regards the Division of Intercourse and Education, it was evident that 
its activities would necessarily apply to foreign countries and that it was 
essential for the success of its undertakings that its work in foreign countries 



APPENDIX III 99 

should be performed by local agents rather than by officers of the Endowment. 
As it was impossible to determine far ahead what should be undertaken and 
what methods should be applied, without advice from competent and 
experienced leaders of thought in the various countries, Dr. Butler, Director of 
the Division, formed a Consultative Committee of European statesmen and 
publicists, and a corps of correspondents, upon whose opinion and sympathetic 
cooperation he can always count. 

We have wondered whether it would be agreeable to the leaders of thought 
in Latin America to create an organization somewhat similar to the General 
Consultative Committee already formed in Europe. 

The Division has inaugurated visits of eminent men and an educational 
exchange with Japan. I hope to be able to obtain advice and information in 
South America which will enable us to begin in the near future a mutual exchange 
of professors and students with Latin America. 

The Endowment is anxious to have the exchange begin at once by the sending 
of two eminent savants or publicists of South America to the United States, 
and two North Americans to South America. Each of these gentlemen would 
devote his time to two institutions in the continent that he visits. 

It is useless to dwell upon the wisdom and the timeliness of these projects, 
for it is common knowledge that many of the misunderstandings that exist 
between nations are the result of ignorance of local conditions, traditions and 
ideas. Personal contact proves that all men are at bottom strangely alike, and 
that personal contact, discussion, and an exchange of ideas lay the foundations 
that are indispensable for friendship and good understanding. 

One of the activities to which this Division attaches great importance is the 
establishment of Associations for Conciliation throughout the world. 

A few years ago the parent association was organized at Paris by Baron 
d'Estournelles de Constant. The branch in the United States, of which Dr. 
Butler is President, was created in 1906. The German Association and the 
English Association were organized in 1912, and I am charged to appeal to 
interested persons in the countries that I have the honor to visit, to cooperate 
by organizing branch societies of International Conciliation to be connected 
with the parent society in Paris. These associations, although local in origin, 
have nevertheless an international mission and seek to create, by their meetings 
and the useful pamphlets that they regularly publish, friendly feelings towards 
the peoples of foreign countries. 

Permit me to lay before you the aims and purposes of societies for 
International Conciliation in the words of the founder of the parent society at 
Paris. In a memorandum which he was good enough to prepare on this subject, 
Baron d'Estournelles de Constant says : 

Conciliation is not a sentimental or humanitarian organization ; it is a 
practical and patriotic step forward in the national interest of each country, 
particularly of young countries, which need to devote all their strength and 



100 MR. BACON'S VISIT TO SOUTH AMERICA 

resources to their development. Its aim is to insure a safe tomorrow for the 
world of business and of labor— for the farmer, the manufacturer, the 
merchant, as well as for the artist and the savant ; — to make it possible for 
them to plan and undertake work for the future. 

Conciliation is the modern indispensable complement of the economic 
efforts of every civilized country. To develop national prosperity with the 
aid of peaceful international relations, such is our effort, summed up in 
our motto : Pro patria per orbis concordiam. 

Wars of conquest no longer pay; they engender only hatred, reprisals, 
the ever increasing burdens of an armed peace. These burdens have become, 
among the masses, one of the most powerful arguments in favor of socialism 
and revolution. 

The only worthy wars are wars of independence ; but no one is threatening 
the independence of the American States. They will become stronger by 
learning to know each other better, than by arming themselves against one 
another. 

Arbitration, on the contrary, has stood its test — witness the Alabama, the 
Hull, the Casablanca, the Bering and Newfoundland fisheries cases, etc. _ 

Organize arbitration rather than war, but always prefer conciliation to 
arbitration. 

Such is our conception, our rule of life. 

I sum it up thus : 

War rather than slavery ; 
Arbitration rather than war; 
Conciliation rather than arbitration. 

Arbitration mends, conciliation prevents. Conciliation substitutes the 
spirit of fruitful cooperation for the barren routine of antagonism. 

The Endowment is disposed to assume the expenses incurred in the organiza- 
tion of these societies and to supply the necessary funds to secure the services 
of secretaries capable of energy, devotion, perseverance, and intelligence, upon 
whom depends the usefulness of these societies. 

I shall now take up the work of the Division of Economics and History. 

The function of this Division is "To promote a thorough and scientific 
investigation and study of the causes of war and of the practical methods to 
prevent and avoid it." 

A conference was held at Berne, Switzerland, in August, 191 1, to which 
distinguished economists and publicists from all Europe were invited, to examine 
questions which could be properly and practically studied, and to draw up a 
tentative program for the Division. 

A great number of subjects have already been assigned to specialists chosen 
in the countries to which their work applies. Some of these studies are already 
completed and within a few years the Endowment will have published a series of 
noteworthy volumes, covering all the phases of the program, which will be, — in 
the language of Mr. Root, — "useful to mankind." 

Professor Kinley, an old and sincere friend of Latin America, who represented 
the United States in the Fourth Pan-American Congress held at Buenos Aires, 
has been appointed a member of the Committee of Research, and he will devote 



APPENDIX III 101 

himself more particularly to the problems in which Latin America is interested. 
He will visit Latin America, certainly during the course of next year, in order to 
confer with its leaders of opinion, with a view to obtaining their advice, and if 
possible, their cooperation in the execution of the projects that they may 
recommend. 

The third Division of the Endowment is the Division of International Law. 

This Division, like the others, has found it necessary to create a special 
organization and to secure the services of a corps of jurists, in the correctness 
of whose opinions in legal matters the Trustees can have full confidence. 

The Institute of International Law is composed, — it is hardly necessary to 
say, — of the most eminent jurists of all nations, and the Endowment has asked 
the Institute to act either as a body or through a committee specially appointed 
for this purpose, as adviser to the Division of International Law. The Institute 
has accepted this task, and appointed a committee of eleven at its Christiania 
meeting in 19 12, called the Consultative Committee for the Carnegie Endowment. 
This Committee has acted during the present year as adviser to the Director and 
has drawn up regulations, which have been accepted by the Institute, and by 
means of which the relations established between the Institute, on the one hand, 
through its Consultative Committee, and the Endowment, on the other, through 
its Division of International Law, should become permanent. 

The Committee is composed of eleven members, of which the President and 
the Secretary General of the Institute are members ex officio. The other members 
are elected for a fixed term of years. It should be stated that the members of 
this Committee are men of great experience and of high authority in all questions 
pertaining to international law : They are Messrs. Fusinato of Italy ; Gram and 
Hagerup of Norway; Holland of England; Lammasch of Austria; Lardy of 
Switzerland ; Renault of France ; Rolin of Belgium ; and Vesnitch of Serbia. 

The Division has several works in preparation. The first is a collection of all 
general and special treaties of arbitration; and with regard to the treaties of 
the nineteenth century, the Endowment would be very grateful to the publicists 
of Latin America if they would kindly furnish information about certain questions, 
on which they have the best, perhaps the only knowledge, and the Trustees of 
the Endowment would appreciate as a great favor on the part of the Governments 
of Latin America, if they would kindly furnish copies of these treaties, inasmuch 
as it is very difficult always to procure texts that are absolutely accurate and 
trustworthy. All known cases of international arbitration are to be collected 
and published in the form of legal reports, and the series will be continued 
indefinitely. Professor John Bassett Moore, the well known authority in matters 
of international law and arbitration, recently professor at Columbia University 
and at present Counselor for the Department of State of the United States, is in 
charge of this monumental work and is actively engaged upon it. 

The Institute of International Law, which acts as adviser to the Division of 
International Law, was created in Europe in 1873 ; but, although this Institute 



102 MR. BACON'S VISIT TO SOUTH AMERICA 

represents the "universal legal conscience", many jurists have felt the need of an 
institution to represent the legal conscience of America, to study the problems 
that interest the New World in particular, and to consider, from the American 
point of view, general questions in the law of nations. 

As you know, an American Institute of International Law was founded in 
1912 by Mr. Alejandro Alvarez of Chile and Dr. James Brown Scott, the Director 
of the Division of International Law of the Endowment. This Institute contem- 
plates the formation of National Societies of International Law in every American 
country, to be affiliated with it and to work in harmony with it in studying 
American problems, with the view of developing international law, of making 
known its principles in all countries, and of contributing to the peaceful relations 
of nations, because these relations, if enlightened public Opinion so demands, will 
be based upon the principles of an equitable and highly developed system of 
international law. 

The American Institute of International Law will be composed of five 
publicists from each of the American Republics, selected by the charter members 
of the Institute from among the members of the National Societies, and every 
member of a National Society has, by virtue of such membership, the right to be 
enrolled as an associate member of the Institute and to participate in its labors. 

Lest I appear to be describing in exaggerated terms the aims and purposes of 
the American Institute of International Law, of which Mr. Elihu Root is the 
Honorary President, let me quote a passage from a learned Dutchman, a 
professor of international law, who may be supposed to treat this matter more 
disinterestedly. After speaking of the great example that America has set the 
world by undertaking the codification of international law, he says : 

The second example is furnished us by an Institute essentially scientific, 
whose moral influence is almost as great. The gradual drawing together of 
the North and South has created a new instrumentality of progress. The 
projects of a Pan-American Union, which were launched long since, but have 
never succeeded, have at last brought forth a favorable result in the field of 
peaceful studies, thanks to the talent and the perseverance of two illustrious 
men, one in the northern, the other in the southern half of the Western 
Hemisphere. In the course of the past year Mr. James Brown Scott, the 
noted jurist of the United States and Mr. Alejandro Alvarez, formerly 
professor and Counselor to the Ministry of Foreign Affairs of Chile, who in 
June 1912 at Rio exerted a most salutary influence on the great project of 
codification, met at Washington and founded, in October 1912 the American 
Institute of International Law. This Institute has for its object: (1) To 
contribute to the development of international law; (2) to strengthen the 
common sentiment of international justice; (3) to bring about universal 
acceptance of peaceable methods of settling international disputes between 
the American States. 

This brilliant idea sprang from the conviction that it is better to spread 
conceptions of law and justice by a slow but constant infusion into the heads 
and hearts of nations than by diplomatic negotiations, which do not rest on 
popular sentiment. 



APPENDIX III 103 

If we take into consideration the fact that the peace movement is far 
more widespread in America than elsewhere, that it rests either upon a 
religious basis, or upon a community of interests and of tendencies that may- 
well be envied, we can appreciate at its true value this further proof of 
vigorous progress which has come to us from the other side of the ocean. 
It revives our hope and impels us to increase our efforts. 

Mr. Root and his colleagues attach the greatest importance to the establish- 
ment and the satisfactory operation of the American Institute of International 
Law and its affiliated societies in each of the American countries. 

The Endowment grants at present a subvention to the older Institute, founded 
in Europe. This subvention is to cover the traveling expenses of the members 
of the Institute, expenses incurred by its commissions and the publication of 
their proceedings and reports. The new Institute can count on receiving financial 
aid from the Endowment as soon as the national societies are definitely formed, 
and upon being placed on the same footing as the older Institute. 

The American Journal of International Law, which, with a few slight 
changes, could be made the organ of the American Institute, already receives 
an annual subvention from the Endowment. 

Another institution in which the Division of International Law takes great 
interest, and which it will maintain with a subvention, is the Academy of Inter- 
national Law, which it is proposed to establish at The Hague. 

A proposal was made at the Second Peace Conference at The Hague 
for the creation of an Academy of International Law, and the plan was 
developed by the President of the Conference. No resolution was passed at 
the time, but the idea impressed itself upon the publicists of every nationality. 
A committee of Dutch publicists, under the presidency of Mr. Asser, whose 
recent death we all deplore, has taken the initiative in the creation and installa- 
tion of such an Academy in the Peace Palace at The Hague. 

The Court of Arbitration would apply the law, which would be systematically 
taught in the Academy, and the marvelous palace, which was officially opened in 
the month of August last, would become indeed a Temple of Peace, the home 
of International Law. 

Mr. Asser's proposition contemplates systematic instruction, during the 
summer months, in international law and subjects pertaining thereto, by a 
specially constituted and changing faculty, in that the professors would be chosen 
from among the publicists of different countries. Courses of lectures would be 
given on important and timely subjects by publicists, who, in addition to long 
theoretical training, had acquired great experience in the practice of international 
law. 

It is also proposed that the Governments should become interested in the 
Academy and that they be invited, through diplomatic channels, to designate 
appropriate officials in their various departments, to take the courses of the 
Academy. 



104 MR. BACON'S VISIT TO SOUTH AMERICA 

The Institution would be unique in its summer sessions, unique in its small 
and changing faculty, and unique in its student body gathered from Various 
foreign countries and from official circles. The lectures, published in the form 
of pamphlets, would enrich the literature of international law. The law itself 
would be treated from different viewpoints by competent professors, no two 
of whom would be from any one country. The student body would be recruited 
from different countries, and little by little they would exert an influence in 
their respective countries, so that the Academy would greatly aid in bringing 
about a better understanding of international rights and duties and in dissemina- 
ting the principles of justice. 

When constituted, the Academy will form a separate and independent 
institution under the control of a committee or curat orium specially appointed, 
composed principally of former Presidents of the Institute of International Law. 
Thus organized and operated, it would promote the object for which the Endow- 
ment was created, but it would not be a direct agency of the Endowment, nor 
under its control. 

Mr. Root has charged me to submit to you the plan of this Academy and 
to request the cooperation of all the Republics of Latin America, with the view 
of designating one or more of their citizens to attend the lectures and courses 
of instruction which will be given at the Academy when established. 

Another matter which I have been charged to bring to your attention is 
the formation of National Committees to examine questions which might properly 
appear in and form a part of the program of the next Hague Conference, 
which committees will put themselves in communication with similar committees 
formed in all the American countries. 

It is general knowledge that the Second Peace Conference at The Hague 
in 1907 proposed the meeting of the Third Conference at a time approximately 
equal to that which elapsed between the First and the Second Conferences ; that 
is to say, eight years, so that, if the proposal is put into effect, we can expect 
the meeting of the Third Conference approximately in 1915. 

It was also stipulated in the above mentioned proposal that some two years 
before the probable meeting of the Conference, an international preparatory 
committee be constituted by common agreement among the Powers. 

It is evident that the various countries that will be invited to The Hague 
should examine these important questions before the constitution of the Inter- 
national Preparatory Committee, and it appears advisable, if not necessary, that 
each Government should name a committee to examine these questions in detail, 
so that the Governments may be in a position to formulate their propositions 
in the fulness of knowledge. 

As the American Republics will consider it their right to attend the Con- 
ference, it is their duty to prepare themselves in advance for an active partici- 
pation in its proceedings. They should seek to increase the usefulness of each 



APPENDIX III 105 

successive Conference by making important contributions to them, and that can 
be accomplished only if they carefully prepare in advance for the meeting. 

It is not expected that the American States will present a series of projects 
in common to the Conference, nor that they will submit propositions in common, 
but, if the various Governments exchange views, so as to reach an agreement 
on the questions that, in their opinion, should be presented and that might enter 
into international treaties, it would considerably facilitate matters. 

The eminent French publicist, Professor A. de Lapradelle, refers in the 
following words to the cooperation of the American Republics in preparing 
questions for discussion at The Hague : 

The Second Peace Conference, by calling to The Hague all the Amer- 
ican States, brought to light disagreements among them on certain points. 
All of them have not the same conception of the law of peace nor of the 
law of war. How then can Europe be convinced of the correctness of 
American views, if America herself is not already so convinced? And 
again, how much more weight American propositions will carry when they 
proceed, not from this or that State, but from America as a whole, whose 
publicists having studied them in the American Institute of International 
Law, have adopted them in the Pan-American Conferences !" 

Permit me to make a final quotation from Mr. Root : 

The Trustees of the Endowment are fully aware that progress in the 
work which they have undertaken must necessarily be slow and that its 
most substantial results must be far in the future. We are dealing with 
aptitudes and impulses firmly established in human nature through the 
development of thousands of years, and the utmost that any one generation 
can hope to do is to promote the gradual change of standards of conduct. 
All estimates of such work and its results must be in terms not of individual 
human life, but in terms of the long life of nations. Inconspicuous as are 
the immediate results, however, there can be no nobler object of human 
effort than to exercise an influence upon the tendencies of the race, so that 
it shall move, however slowly, in the direction of civilization and humanity 
and away from senseless brutality. It is to participate with us in this noble, 
though inconspicuous, work that we ask you to invite our friends in South 
America with the most unreserved and sincere assurances of our high 
consideration and warm regard. 

Excellencies, Ladies and Gentlemen, let me in closing again express my 
most sincere thanks for the great honor done me by the Faculty of Law, as 
well as my deep gratitude for your kindly and sympathetic welcome. 



APPENDIX IV 
Uruguay 



Remarks of the American Minister, Hon. Nicolay Grevstad, 

At a Luncheon Given by Him for Mr. Bacon at the Uruguay Club, 
Montevideo, October 20, 191 3 

[Translation from the Spanish'] 

Excellencies, Ladies and Gentlemen: 

Our warmest welcome to our distinguished guests, heralds of peace and 
brotherhood ! 

We all know that Mr. Bacon is amongst us to-day as the representative of 
the Carnegie Endowment for International Peace. We know, too, that never 
more than to-day is it everywhere necessary to wage the war of reason against 
the war of violence. It is a very happy sign that so illustrious a man as our 
guest should have consecrated his energies to the cause of international peace. 
We can assure him that Uruguay stands ready to heed his good words. We can 
assure him, too, that Uruguay, rich in its fertile lands, in its strong, intelligent 
and progressive people, in its financial and commercial honor— as pure as the 
gold which has ever been the basis of its monetary system— that Uruguay, I 
repeat, will heartily welcome Mr. Bacon, his charming wife and daughter and 
the friends who accompany him. We extend our heartiest greetings to all! 

Response of Mr. Bacon 

[Translation from the Spanish'} 

I am most grateful, Mr. Minister, for your words of welcome, as well as 
for the opportunity afforded me of meeting our countrymen fraternizing with 
this distinguished group of Uruguay's citizens. Please accept, Excellencies, my 
sincere thanks for your kind reception and for the many courtesies showered 
upon me and my family. 

The people of the United States are well aware that all that the Minister 
has just said in praise of Uruguay is true. As the representative of the Carnegie 
Endowment for International Peace, I am charged with a message of affectionate 
greeting from its eminent President and your cordial friend, Hon. Elihu Root,, 
my honored chief, whom I love and whom you, gentlemen, I know, also esteem. 

My mission for the Endowment has been referred to as a mission of friend- 
ship and goodwill. That is very true and I am proud of it, but since ties of 
friendship already bind us, may we not go further than that? For my part 



APPENDIX IV 107 

I should like it to be regarded as a mission of cooperation and mutual help 
among old friends, with the object of planning practical means whereby we 
can work together and march forward toward progress, toward the ideal of 
humanity, toward greater enlightenment for the triumph of right in the world, 
replacing resort to force by resort to justice; toward an international opinion 
which will be the true sanction of international law. We believe that there 
are several practical ways whereby this cooperation can be obtained with but 
little delay, and I expect to explain these to you tonight. The purpose of my 
mission is to lay these plans before you and to solicit your invaluable coopera- 
tion. I am delighted to see side by side in this room the colors of our two flags, 
those of Uruguay and of the United States, and I pray that just as our two flags 
are here entwined so may the hearts of Our two peoples be ever united in lasting 
friendship. 

To the Republic of Uruguay, to its continued friendship with our country 
and to the ladies who have honored us with their presence. 

Address of Mr. Bacon 

At a Reception at the Ateneo, 
Montevideo, October 20, 1913 

[Translation from the Spanish] 

Ladies and Gentlemen: 

You will pardon me, I know, if I venture to address you in your beautiful 
language, whose rhythm attracts me irresistibly, but which, to my very great 
regret, I speak haltingly. 

I am profoundly touched by this new evidence of kindness shown me by 
inviting me to be present at this meeting, held in this Temple of Science and Let- 
ters under the auspices of your famous intellectual leaders. 

Words fail me with which to express the sentiments of my deep apprecia- 
tion for the eloquent remarks of your eminent orator, scholar, poet and statesman. 

In my own name and on behalf of the distinguished statesman whose mission 
I bear, Senator Elihu Root, I thank you with all my heart for your kind words of 
welcome, for this cordial reception and for the flattering words addressed to my 
humble self and so little deserved. 

It is a very great pleasure for me to be permitted to visit, if only for a few 
days, far too short, some of the peoples and countries of South America; for 
it has been one of my most cherished dreams, which I have been able only 
partially to realize as yet, to see with my own eyes your wonderful countries, 
the marvels of your civilization, to meet again friends whom I have known 
and loved in other parts of the world, to make other friendships which will 
add a new joy to life, and fill me with memories which neither time nor 
distance can dim or efface. I come charged with a message of good will from 
your devoted friend and great admirer, Mr. Elihu Root, at whose request, 



108 MR. BACON'S VISIT TO SOUTH AMERICA 

anticipated by my own desire, I have the honor to appear before you. I wish 
I could say to you all that he would say, were he here in person to address 
you and to greet you as an old friend. The expressions might differ, perhaps, 
but I assure you the spirit behind them would be one and the same. 

I would like to have you look upon me as inaugurating a series of interna- 
tional visits which will follow each other without break and be mutually ad- 
vantageous by bringing together accredited representatives of life and thought 
of the Southland as well as of the North ; and inviting you to cooperate in 
the establishment of international institutions which will, we hope, become 
centers of good will, develop and popularize just and progressive principles of 
international law upon which good relations must depend, and in various ways, 
directly and indirectly, by an exchange of thought, an exchange of views and 
a happy combination of effort, result in strengthening the bonds of friendship 
which a common past, common institutions and a common goal urge and demand. 

History and Nature have inspired and increased a deep feeling of solidarity, 
not only between the countries of Latin America, but also between the Re- 
publics of the South and the United States. It behooves us to maintain and 
strengthen this solidarity which, by reason of its two-fold origin, unites insep- 
arably the nations of the new continent in the past, in the present and in the 
future. 

One need only glance at the political history of the New World to see 
the constant interest the United States has taken in the struggles of the Latin 
American nations, first to free themselves from the mother country and then 
to defend the independence they had won against all attempts at conquest on 
the part of European nations. Moreover we might briefly recall that, after 
the emancipation, the United States furnished the Latin States with the forms 
and basic principles of their political institutions, particularly of their republican 
and democratic government, exactly at a time when the ancient political institu- 
tions of Europe were far from responding to the ideas of liberty and to the social 
conditions of the two Americas. 

All this glorious past in the history of the New World should strengthen 
day by day the indissoluble bonds of solidarity which have united the American 
nations since the beginning of their political life. 

Nature has added to the work of History. The geographical situation of the 
States of the New World has brought into being a series of problems common 
to all the States of the Continent, thereby creating among them new 
ties of union. Thanks to the progress of civilization and the perfection of 
means of communication, we in America have come to see the imperious neces- 
sity of solving in a uniform manner, the problems arising out of situations 
and conditions peculiar to the New Continent. 

Anticipating Europe in a way, whose great Powers meet in conference 
only at the conclusion of wars to determine the conditions of peace, all the 
American States have met together in pacific conferences in order to discuss 



APPENDIX IV 109 

questions common to their Continent — hence the name and origin of the Pan- 
American Conferences. These conferences have borne abundant fruit — a num- 
ber of problems of interest to America have been studied; important treaties 
have been signed with a view to developing the social and intellectual life of the 
New World; and, finally, the representatives of the several American States 
have learned to know each other better and have come to appreciate how many 
and how strong are the ties which bind the American nations together. 

The sentiments of solidarity and fraternity which unite the countries of the 
New World in a community of interests should create a work of union and con- 
cord. The way is already open; numerous and fruitful results have been ob- 
tained; the time has come, therefore, to establish in ever increasing measure, 
good understanding and harmony. Above all, it is necessary to correct a mis- 
understanding by the South of the political purposes of the United States. 
As Mr. Root solemnly declared when he was among you, the United States 
desires above all that peace and prosperity reign in Latin America in order 
to strengthen and to tighten the bonds of friendship and of brotherhood, which 
should unite all the American peoples. 

I have the honor to address you not merely on my own account, but on behalf 
of the Carnegie Endowment for International Peace, of which Senator Root is 
President, and to invite you in his name and on behalf of its Trustees to cooperate 
with it in such ways as you may consider possible and advisable. 

In other words, the wish of Mr. Root is to enlist as fully as possible the 
sympathetic interest of the leaders of thought in South America in the various 
enterprises for the improvement of international relations and to bring about 
their practical cooperation in that work. 

The respect and friendship which the Trustees of the Endowment entertain 
for the peoples of Latin America and for the many distinguished Latin Ameri- 
cans with whom many of the Trustees have most agreeable relations of personal 
friendship, lead us to desire that the work of the Endowment may have such 
active and useful cooperation in South America as it has already secured in 
Europe. 

Permit me to explain briefly the work of the Endowment, and to outline 
certain practical projects in which Mr. Root and his associates desire your hearty 
cooperation. 

I regret that today I find myself confined to details somewhat dry and, I fear, 
rather uninteresting at a moment when under the charm of your warm welcome 
and your generous hospitality — in this atmosphere of freedom, consecrated by so 
many struggles and by so many heroes — I would prefer to dwell upon our ideals, 
our hopes of the visions dreamed of by your Artigas and by our Washington. 
For I am proud to share your optimism, sir, and I have an abiding conviction 
that, despite the clouds gathered by opposition and unbelief, we are at the begin- 
ning of a great movement of progress in the evolution of the freedom of the 
world and that from afar we may see the dawning of a brighter, purer day. 



110 MR. BACON'S VISIT TO SOUTH AMERICA 

The principles, the philosophy of the last century are no longer sufficient to 
our needs. We must have new rules of political economy, new principles of 
international law. 

To carry out the work of the Endowment it has been organized into three 
divisions : 

The Division of Intercourse and Education; 

The Division of Economics and History; 

The Division of International Law. 

To aid in the work of the first Division, Dr. Butler, its Director, has created 
an Advisory Council of representative European statesmen and publicists, to 
which has been associated a body of correspondents. 

We have asked ourselves whether it would be agreeable to leaders of thought 
in Latin America to create an organization somewhat similar to the General 
Council which has already been formed in Europe. 

The Division has inaugurated an exchange of visits of representative men 
and an educational exchange with Japan, and I hope to be able to obtain informa- 
tion and advice in South America which will enable us to begin in the very near 
future a mutual exchange of professors and students from Latin America. 

I am instructed to suggest that the exchange begin at once by the annual visit 
of two eminent South American scholars or publicists to the United States and 
two North Americans to South America. Each of these men would divide his 
time between two universities in the country which he would visit. 

One of the activities to which this Division attaches much importance has to 
do with the organization of Associations for International Conciliation through- 
out the world. 

The parent Association was formed by Baron d'Estournelles de Constant 
in Paris some years ago. Branches have been established already in the United 
States, Germany and England, and others are in the course of formation. 

I am directed by my instructions to invite the cooperation of interested 
persons in the countries which I have the honor of visiting, to organize branches 
of International Conciliation to be affiliated with the parent branch at Paris. 
These associations, while local in origin, have nevertheless an international 
mission and tend to create by their meetings and excellent pamphlets which they 
regularly issue, a friendly feeling towards the peoples of foreign countries. 

"The Association for International Conciliation", says Baron d'Estournelles 
de Constant, "is not a sentimental, humanitarian organization. It is a practical, 
patriotic advance followed in the national interest of each country particularly 
in young countries which must consecrate all their forces and resources to their 
own development. 

"Conciliation is the modern, indispensable complement of economic effort in 
every civilized country. To develop the national prosperity by the promotion of 
good international relations; such is our object summed up in our motto: 'Pro 
Patria Per Orbis Concordiam.' 



APPENDIX IV 111 

"Undertake arbitration rather than war, but prefer always conciliation to 
arbitration. Our idea, our rule of life is this : 
"War rather than slavery. 
"Arbitration rather than war. 
"Conciliation rather than arbitration. 
"Arbitration cures ; conciliation prevents. 
"Conciliation substitutes fruitful cooperation for sterile antagonism." 

The Endowment will provide for the expenses incident to the organization 
of these associations. 

Let me now describe the work of the Division of Economics and History. 

The work of this Division is "to promote researches into and a profound, 
scientific study of the causes of war and of the practical method to prevent and 
avoid it." 

A conference was arranged at Berne in Switzerland two years ago, to which 
distinguished economists and publicists, drawn largely from Europe, were invited, 
to consider the subjects that could properly and profitably be studied and to draft 
the tentative programme for the Division. 

A large number of topics have already been assigned to specialists selected 
from the countries to which their work relates; some of the studies have been 
completed, and, in the course of a few years, the Endowment will have published 
a series of remarkable monographs, covering all phases of the elaborate pro- 
gramme, which will, it is believed,— to quote the language of Mr. Root — "be 
useful to mankind." 

Professor Kinley, an old and sincere friend of Latin America, who repre- 
sented the United States at the Fourth Pan-American Conference held in Buenos 
Aires, has been appointed a member of the Committee of Research, and he will 
devote himself more especially to the problems in which Latin America is inter- 
ested, and, in the course of the coming year, he will visit Latin America to confer 
with the leaders of opinion to obtain their advice and, if possible, to gain their co- 
operation, both in suggesting and in executing those projects which they may 
recommend. 

The Third Division of the Endowment is the Division of International Law. 

This Division, like the other Divisions, found it necessary to create a special 
organization and to have a body of advisers. 

The Institute of International Law consists, it is hardly necessary to state, 
of the leading authorities of all nations, and the Endowment requested the In- 
stitute to act as advisor to the Division of International Law. 

The Institute accepted the invitation and selected a committee which has 
acted as advisor to the Director. 

The Division has under way several works. The first is a collection and 
publication of all general and special treaties of arbitration, and, in regard to the 
treaties of the nineteenth century specially, the Endowment would be very grate- 
ful to the publicists of Latin America if they would supply information on certain 



112 MR. BACON'S VISIT TO SOUTH AMERICA 

questions of this nature, which is best known to them and which may perhaps be 
known only to them; and the Trustees would regard it as a very great favor if 
the governments of Latin America would supply copies of such treaties, as it is 
very difficult to obtain at all times accurate and reliable texts. All known 
instances of international arbitration will be collected and published with 
notes. 

The Institute of International Law which now acts as Counsellor for the 
Division of International Law was founded in Europe in 1873, but, although 
the Institute represents "the universal juridical conscience," many jurisconsults 
have felt the need of an institution which should represent the juridical con- 
science of America, study the problems which concern particularly the New 
World and examine from the American point of view general matters relating 
to the Law of Nations. 

As you are well aware an American Institute of International Law was 
founded in 1912 by Senor Alejandro Alvarez of Chile and Doctor James Brown 
Scott, Director of the Division of International Law of the Endowment. This 
Institute contemplates the formation of National Societies of International Law 
in all American countries, to be affiliated with it, and work in studying American 
problems, in making known their principles and in contributing to a better 
understanding among nations. 

Lest I should seem to state in exaggerated language the aims and purposes 
of the American Institute of International Law, of which Mr. Elihu Root is 
Honorary President, let me quote a passage from a distinguished Dutch scholar 
and professor of international law, who may be supposed to treat the subject 
with more detachment. 

After having spoken of the great example America has given to the world 
in undertaking the codification of international law, he says : 

"The second example is given us by an Institute essentially scientific but 
scarcely inferior in moral value. This Institute has for its objects: (1) To 
aid in the development of international law ; (2) to unite the common sentiment 
for international justice; (3) to procure a general acceptation of peaceful pro- 
cedure in the settlement of international disputes among the American 
States. 

"This luminous idea sprung from the conviction that it is better to spread 
conceptions of right and justice by a slow but constant appeal to the minds and 
hearts of peoples than by diplomatic negotiations which are not based on a gen- 
eral popular sentiment. 

"If one considers that the peace movement in America is much more gen- 
eral than elsewhere and that it rests on a religious foundation or on a community 
of interests and enviable characteristics, one can appreciate this new proof of a 
virile progress which is brought to us from the other side of the ocean; it gives 
new life to our hopes and redoubles our efforts." 



APPENDIX IV 113 

Mr. Root and his associates attach the highest importance to the establish- 
ment and successful operation of the American Institute of International Law 
and of its affiliated societies in each of the American countries. 

The Endowment now grants a subvention to the older Institute founded 
in Europe. This subvention is designed to cover the traveling expenses of the 
members of the Institute, the expenditures of the commission and the pub- 
lication of their work. The new Institute can count upon receiving financial 
aid from the Endowment, as soon as the National Societies are thoroughly or- 
ganized, and upon being placed on an equality in this regard with the older 
Institute. 

The American Journal of International Law which, with some slight modi- 
fication, might become the organ of the American Institute, receives now an 
annual subvention from the Endowment. 

Another institution in which the Division of International Law is greatly 
interested and which it will subvention and maintain with much pleasure is the 
Academy of International Law which it is proposed to establish at The Hague. 

The proposal was made at the second Hague Peace Conference to create 
an Academy of International Law. No action was then taken, but the idea has 
commended itself to publicists of many nationalities. A committee of Dutch 
publicists, under the presidency of Mr. Asser, whose recent death we all deplore, 
suggested that such an academy be created and installed in the Peace Palace at 
The Hague. 

Mr. Asser's proposal contemplates systematic instruction during the sum- 
mer months in international law and cognate subjects by a specially constituted 
and changing faculty, to be chosen from publicists of different countries. 
Courses of lectures on important and timely subjects would be given by pub- 
licists who, in addition to long theoretical training, have had large experience 
in the practice of international law. 

Mr. Asser also proposed that the governments should be interested in the 
Academy and invited through diplomatic channels to designate appropriate 
officials of various branches of the governmental service to attend the Academy. 

The Institution would be unique in its summer sessions, unique in its small 
and changing faculty, and unique in its student body, drawn from every country. 

The Academy would thus advance the work of the Endowment, but it 
would not be a direct agency of the Endowment nor under its control. 

Mr. Root directed me to submit to your consideration the project of this 
Academy and ask the support of all the Latin American republics that they 
may designate one or more of their citizens to attend the lectures and follow the 
course of instruction at the Academy. 

A matter to which I desire to call your present attention is the establish- 
ment of national committees to determine what subjects are to be embodied in 
the programme of the next Peace Conference at The Hague ; it will be the duty 



114 MR. BACON'S VISIT TO SOUTH AMERICA 

of these national committees to get into touch with the national committees 
organized in the various other American countries. 

It is common knowledge that the second Peace Conference of 1907 recom- 
mended the meeting of the third Conference to be held at a period approxi- 
mately equal to that which had elapsed between the first and second Con- 
ferences, that is to say, eight years, so that, if the recommendation is carried 
out, we may expect the third Conference to meet approximately in 1915- It 
was further provided in the recommendation that about two years before the 
probable meeting of the Conference an international preparatory committee 
should be constituted by common accord among the powers. 

It is evident that the different countries which will be invited to The Hague 
should consider all these important matters before the constitution of the inter- 
national preparatory committee, and it seems advisable — indeed necessary — 
that each government should appoint a committee to consider these matters in 
detail in order that the governments should be able to make their recommenda- 
tions in the fulness of knowledge. 

It is not expected that the American States should present a series of 
joint projects to the Conference, or joint recommendations, but it would greatly 
facilitate matters if the different governments should communicate their views 
sO as to reach an agreement upon the subjects which in their opinion should be 
presented and which might form the subject of international agreements. 

The five subjects which I am directed to lay before you and to solicit your 
cooperation therein are therefore, as follows : 

The formation in each country of a National Society of International Law 
to be affiliated with the American Institute of International Law ; 

The establishment in each country of a National Society for International 
Conciliation to be affiliated with the parent Association for International Con- 
ciliation at Paris; 

The appointment of National Committees for the consideration of con- 
tributions to the programme of the next Hague Conference, and for making 
arrangements for the inter-communication of such Committees among all Ameri- 
can countries; 

An educational exchange between the South American Universities and 
those of the United States, and international visits of representative men; 

The participation of the American governments in the proposed Academy 
of International Law at The Hague, by providing for the sending on the part 
of each government of one or more representative students to that Academy. 

Allow me to employ a final quotation from Mr. Root's instructions to me: 

"The Trustees of the Endowment are fully aware that progress in the work 
which they have undertaken must necessarily be slow and that its most substantial 
results must be far in the future. We are dealing with aptitudes and impulses 
firmly established in human nature through the development of thousands of 



APPENDIX IV 115 

years, and the utmost that any one generation can hope to do is to promote the 
gradual change of standards of conduct. All estimates of such a work and its 
results must be in terms not of individual human life, but in terms of the long 
life of nations. Inconspicuous as are the immediate results, however, there can 
be no nobler object of human effort than to exercise an influence upon the ten- 
dencies of the race, so that it shall move, however slowly, in the direction of 
civilization and humanity and away from senseless brutality. It is to participate 
with us in this noble, though inconspicuous, work that we ask you to invite our 
friends in South America with the most unreserved and sincere assurances of 
our high consideration and warm regard." 

Excellencies, Ladies and Gentlemen : Before concluding I wish to express 
again to you my most sincere thanks for the great honor which has been done me, 
and to testify my profound gratitude for your warm and sympathetic welcome. 

Remarks of Senor Emilio Barbaroux, Minister of Foreign Affairs, 

At a Dinner Given ey Him for Mr. Bacon, at the Uruguay Club, 
Montevideo, October 21, 1913 

[Translation from the Spanish] 

Mr. Bacon: 

In your address last night you summarized the purposes of your mission, 
telling us that where there is a nation there is also a law of nations, and that 
in all cases of misunderstanding between nations,-conciliation should be preferred 
to arbitration, and arbitration to war. 

Although facts from their very nature show that the thought of suppressing 
appeals to arms is as yet in the realm of idealism, nevertheless, every earnest 
effort directed to this end should deserve our approval and our sympathy; and 
they have already been accorded you by the representative men of our intellectual 
world. In tendering you, then, tonight, on behalf of the Government, this fare- 
well dinner, as a token of friendship, my earnest prayer is that the mission en- 
trusted to you by the eminent Mr. Root may in the near future bear the fruit 
which this great movement of international brotherhood merits. 

I beg you, ladies and gentlemen, to join me in this prayer, and to express at 
the same time our heartiest wishes for the happiness of Mr. Bacon, of his 
■charming family and of the friends who accompany him. 

Response of Mr. Bacon 

[Translation from the Spanish] 

Excellencies, Ladies, Gentlemen, Mr. Minister: 

I thank you most cordially for your very kind words addressed to my humble 
self, for those touching my beloved land and for the honor of this brilliant 
gathering. I desire also to repeat my profound thanks for the very hearty wel- 
come given me by you, Mr. Minister, and by your fellow-citizens, extended with 



116 MR. BACON'S VISIT TO SOUTH AMERICA 

the proverbial affability and hospitality of the courtly Spanish race, which has 
been preserved so pure in this lovely Uruguayan land. 

We Americans of the North are proud of our progressive sisters of the 
South. Among these the noble and charming Republic of Uruguay takes a promi- 
nent place, due not only to the culture of her people, the virility and strength of 
the race, but also to the progress she has achieved. We entertain the very best 
wishes for your prosperity. Profoundly grateful that the relations of the past 
redound to the credit of our common continent and that our present relations are 
harmonious, may we not hope that these good relations will not only be per- 
petuated, but strengthened in the future, and that with each added year our rela- 
tions will become more intimate, more confidential, in a word, more fraternal. 

The noble words spoken by Mr. Root in 1906 at. the Pan-American Con- 
ference represent the sentiments and the ideals of the people of the United 
States as truthfully and as forcefully today as when they were spoken seven 
years ago. I like to think of this memorable declaration as the "Root Doc- 
trine" — and I am proud to be considered worthy to speak of it as a humble 
apostle. 

The Trustees of the Carnegie Endowment believe that the ideals of the great 
thinkers can be advanced more quickly to the benefit of the world by uniting their 
efforts in certain well-defined, practical activities. 

If you join us in this work of intellectual union and concord, if the Latin 
American countries and the United States unite in a constant effort for the im- 
provement of the relations between peoples, if all the countries of this hemi- 
sphere work in unison toward a common ideal, there will then be created a power- 
ful instrument for good which can not fail to benefit our continent, the world, 
and humanity. 

Once again, Excellency, I thank you from my heart. Although much to my 
regret my stay among you must be short, yet the progress of your country and 
the warmth of your welcome have made an impression that will never be effaced. 
Before leaving this beautiful city, permit me to say that I take with me feelings 
of personal affection for you and that I should like my farewell to be not "good- 
bye," but "till we meet again." 

I drink to the health of the President of the Republic of Uruguay. 



APPENDIX V 
Chile 



Reception at the University of Chile 

Remarks of the Rector oe the University. Dr. Domingo Amunategui Solar in 

Conferring a Diploma upon Mr. Bacon, 

Santiago, October 25, 191 3 

[Translation from the Spanish] 

The University of Chile is gratified to greet the Hon. Mr. Bacon and to 
welcome him as an honorary member of its Faculty of Law and Political Science. 

I present you, Sir, this diploma with the hope that it will serve as a link of 
friendship with the university to which you belong, be a token of recognition for 
your personal attainments, and attest our great respect for the Carnegie Endow- 
ment you so worthily represent. 

Address of Dr. Luis Barros Borgofio, Dean of the Faculty of Filosofia y 
Humanidades, University of Chile, 

Santiago, October 25, 1913 

[Translation from the Spanish] 

Ladies and Gentlemen: 

It is a pleasure to me to perform the task assigned me by the Board of Public 
Instruction of welcoming, on behalf of the University of Chile, the illustrious 
American statesman, Mr. Robert Bacon, formerly Secretary of State of the great 
Republic of the North and its Ambassador to France, and now a prominent mem- 
ber of the University of Harvard, distinguished emissary of the policy of inter- 
national conciliation, apostle of peace and powerful promoter of the happiness 
and welfare of mankind. 

I am convinced that of all his honors — and they are many — and of all the 
high offices he has held, none is more highly prized by the clear and forceful 
mind of Mr. Bacon, and none will contribute to shed greater glory on his brilliant 
personality than the mission which he is now undertaking on behalf of the insti- 
tution which is destined to dispense still greater benefits among civilized peoples, 
and to which the land of Carnegie can point with legitimate pride as the greatest 
work conceived in any age to the greater glory of civilization. 

The ideal of international solidarity, the dream of philosophers and poets is 
today receiving devout attention from the statesmen of the greatest nations. 

The idea of the foundation of peace societies, advocated for the first time in 
1814 through the religious spirit of the Quakers of America, finds fertile 
soil in that great centre of the agitation of ideas, France, in 1848. 



118 MR. BACON'S VISIT TO SOUTH AMERICA 

In the midst of that romantic wave of universal regeneration, in the midst of 
all those economic and social systems convulsed by the new spirit, Paris, with 
faith in the principles of general solidarity, gives the world the first real inter- 
national peace congress. 

It is the age when Cobden, apostle of commercial freedom, is shaking the 
whole economic system of England with his powerful genius, harmonizing the 
interests of his country with the great interests of humanity. 

It is the time when the prophetic spirit of Victor Hugo foresees a humanity 
governed only by the laws of equity and justice. 

The poet foretells, as it were in a vision, the task to which Mr. Carnegie, 
this great toiler for humanity, consecrates today his titantic efforts. 

"The day will come," said Victor Hugo in one of his most inspired passages, 
"when there will be no other field of battle than the markets open to commerce, 
to intelligence and to ideas. The day will come when the august arbitration of 
a great sovereign senate will be to Europe what Parliament is to England, the 
Diet to Germany, and the Legislative Assembly to France." 

The second half of the nineteenth century is marked by the Peace Leagues 
of Paris and Geneva. These have in turn by their propaganda brought into being 
hundreds of general and local societies through the work of the International 
Bureau of Berne, the Institute of International Law and the numerous peace 
associations which under the glorious standards of Lemonier, Passy, Simon and 
d'Estournelles de Constant today march triumphant toward the goal set up by 
their heroic efforts. 

The great capitals of the world resound year by year with the voices of the 
most representative men of all nations who step by step are hastening the day of 
true and lasting understanding among nations. 

Under the chairmanship of Jules Simon there met for the first time in Paris 
members of the English, Spanish, Belgian, German, French, Italian, Danish, Greek 
and Hungarian Parliaments. 

This was not, as in the peace congresses, an assembly of men inspired with 
the lofty ideal of universal peace, but devoid of all authority; rather was it the 
union of statesmen, of active parliamentarians, solemnly binding themselves to 
labor in their respective congresses for the realization of the programme of peace 
and arbitration. 

Year after year this Conference has assembled, with growing success in 
Paris, London, Rome, Berne, at The Hague, in Budapest, Brussels, Milan, Mon- 
aco and Lucerne; and by the end of the last century this interparliamentary 
union had on its roll fifteen hundred members, committed to the triumph of the 
noblest cause under which men may range themselves: "Justitia e Pace" — by 
Justice and by Peace. 

The visit of the Scandinavian members of Parliament to France and the 
return visit of the French statesmen mark a period of real understanding between 
these nations. 



APPENDIX V 119 

The cause of peace later received its greatest impetus on the occasion of the 
visit of the French parliamentarians to London and the return of this visit by 
the English statesmen, thus bringing about an agreement of great significance 
between these two nations which has made possible the entente cordiale on which 
rests today the peace of the world. 

The visit of Mr. Root, still fresh in the memory of the American nation 
and of our own people, marked for us a definite era in our international relations ; 
it opened the furrow, the seed was sown, whence has sprung the grain to nourish 
the life of mutual understanding and international solidarity between the great 
Republic of the North and the different States of Latin America. 

The crowning effort, however, of the present age in the cause of peace is 
The Hague Conference. 

The advent of this peaceful revolution has left to the coming century the 
fruitful task of maintaining peace as the aim of the foreign policy of every 
civilized nation. 

Two moral results of transcendental importance to the western nations have 
been derived from that august assembly. 

The first consists in the express manifestation of the world longing for 
peace among all civilized peoples. 

The second is the material and moral possibility, every day becoming 
greater, of resorting to arbitration in every difference. If it has not been possible 
to suppress warfare entirely, it has at least been possible to lessen the possibilities 
thereof, while its horrors have been in part mitigated. 

The work achieved unquestionably constitutes a great victory for the cause 
of right; it proves that the love for justice pervades the atmosphere of interna- 
tional relations, and justifies the belief that the day of caprice and of violation 
is over, and that law, equity and the interests of humanity and civilization are 
every day more and more respected throughout the world. 

The Conference was unable to give form to the fundamental idea proposed of 
limiting armaments ; but it did succeed in creating a juridical court of arbitration. 

The Institution was born ; to-day it has its president, its members, its palace, 
its journal and its own budget. 

The corporation is officially recognized as a tribunal by every civilized state. 

The new law is solemnly recognized and established, and the substitution 
of judicial settlement for appeals to force is likewise acknowledged. 

Through the generosity of Mr. Carnegie this Tribunal has been housed in 
a palace worthy of its lofty mission. 

"In this place," has said Mr. Carnegie, "will meet the most sacred conclave 
that has ever honored humanity in any epoch of history." 

The temple, as its founder has called it, has just been solemnly inaugurated, 
the ceremony having taken place on the 28th of August, 1913, in the presence 
of the Queen of Holland, all the members of the Government and the envoys 
of all the powers represented at The Hague Conference. 



120 MR. BACON'S VISIT TO SOUTH AMERICA 

This imposing ceremony, unique of its kind, had distinctive characteristics. 
It was simple, austere, shorn of all military display ; only the chimes from the 
Palace of Peace proclaimed to the world that the clock had started on that journey 
which should end only when the hour of eternal peace has struck. In these 
words did the Minister of Foreign Affairs of Holland express himself, not, 
however, without adding his fear that that day was still distant. 

The other address of that memorable occasion was delivered by Mr. van 
Karnebeek, President of the Board of Directors of the Carnegie Foundation 
for the Peace Palace. 

The work entrusted to The Hague Conference although of very great 
significance, does not meet the requirements of the Carnegie Endowment pro- 
gram, which embraces vaster and more diversified projects. 

As a cardinal principle, the Endowment undertakes to sustain various 
societies whose purpose is to effect in concrete form a better understanding 
between nations, to make the mutual knowledge of friendly peoples more real 
and to multiply the ties of friendship and concord between the great countries 
of the world. 

In the furtherance of these ends, it has a Division of Intercourse and Educa- 
tion comprising the exchange of professors, students and literary works; it 
maintains a Division of Economics and History, and devotes particular attention 
to its Division of International Law and the special Academy of this branch of 
human knowledge established at The Hague under the auspices of the powers 
signatory to the Conference. 

These various activities of the beautiful and comprehensive program of 
the Carnegie Endowment are of the greatest importance to all civilized nations, 
and yet they remain unknown and untouched by the Latin American countries, 
notwithstanding the benefits that would accrue to them therefrom. 

To make known this praiseworthy work, to stimulate public opinion in 
these countries and to secure the cooperation of their public men in favor of 
this noble crusade, is the purpose of this visit to us which the people of Chile 
regard as an event of far-reaching importance. 

But if certain of the objects of the Carnegie Endowment call for the sympa- 
thetic support of governments, there are, on the other hand, many others which 
demand the special cooperation of men of science, of professors and specialists 
in international law and of teachers of history and economics. 

It is for this reason that our University has associated the whole of its 
personnel with this undertaking, and it is convinced that so soon as the members 
realize the different aims of the mission they will earnestly cooperate to the 
fulfilment of these purposes, each collaborating in his own particular sphere. 
And in doing so they will bring the work within the scope of international poli- 
tics, the study of which has been traditional in this Republic. 

Chile has the honor of occupying the fourth place among the countries that 
have resorted to arbitration during the nineteenth century. Statistics show that 



APPENDIX V 121 

Great Britain is first with 86 arbitration treaties, the United States of America 
second with 66, France third with 38, and, then, Chile with 28 to her credit. 

But the greatest work in this direction is that accomplished by Chile and 
the Argentine Republic in signing the treaty of May 28, 1902, whereby they 
limited their armaments, a purpose that so far The Hague Conference has striven 
in vain to effect. 

And this fact has not passed unperceived. In his notable address in favor 
of arbitration to the students of the University of Saint Andrews, Mr. Carnegie 
pointed to this treaty as one of the most advanced in realizing the principles of 
the Endowment's program. 

"The greatest step taken in this direction," says Mr. Carnegie, "is to be 
found in the treaties celebrated between Denmark and Holland, and between 
Chile and the Argentine Republic whereby these countries agreed to submit all 
differences of any nature whatsoever to arbitration." 

It has been held that to America belonged, in the nineteenth century, the 
initiative of arbitration, and that the nations of this continent have maintained 
and widened the scope of this judicial proceeding, even though they have not 
yet formulated a general definite program. 

And it is not, indeed, a difficult matter to prove that none of these nations 
has more frequently appealed to and used this peaceful means of adjusting 
differences with other nations than has Chile. In one of her oldest treaties, cele- 
brated sixty years ago, the Government of Chile- expressly declared that it set 
forth "with pleasure the idea of arbitration, which it has always regarded as the 
only just, legal and logical means of settling every international difference." 

The mission of peace and judicial settlement will accordingly find a fruitful 
field in our country; and if it has occasionally been found necessary to resort to 
the stern necessity of war in defense of what the country has deemed its rights, 
this step has only been taken after every recourse to conciliation and arbitration 
had been exhausted. 

The arduousness of earning a livelihood which the peculiar topographical 
conditions have imposed upon the Chilian people, the habits of order and the 
exercise of free democratic institutions which has characterized her national life, 
her social organization and the prosperity of her agriculture and commerce, in 
a word everything which calls for the great blessings of peace, has led the people 
of Chile to rest their prosperity, their development and their welfare solely on 
peace. 

This Republic must then be an enthusiastic and active cooperator in the 
work of general conciliation and political solidarity espoused by the Carnegie 
Endowment. 

From the Temple of Peace there peals forth the clear and triumphal note of 
the new law when judicial proceedings will supplant appeals to arms and violence. 

What has already been done augurs well for the not distant triumph of these 
principles of justice and universal peace. 



122 MR. BACON'S VISIT TO SOUTH AMERICA 

The word of Mr. Bacon, now our guest, is doubly significant, first by virtue 
of his great learning and acknowledged mastery of public affairs, coupled with 
long experience, and, secondly, by reason of the exalted and distinguished repre- 
sentation with which he is invested. His eloquence will paint for us the picture 
of the noble and beneficent work he has done so far, it will tell us of his hopes and 
aims for the future, and so better fit us for the task of associating the different 
elements that will be needed to place the work of the Carnegie Endowment on a 
firm foundation in our country. 

Address of Mr. Bacon 

[Translation from the Spanish'] 

Excellencies, Mr. Rector, Mr. Dean, Ladies, Gentlemen: 

Pray pardon me if I make bold to address you in your beautiful language 
whose rhythm attracts me irresistibly but which, to my deep regret, I speak but 
haltingly. 

I am profoundly touched by the thought of being present in this room, a 
veritable temple of science and letters, under the auspices of your most dis- 
tinguished intellectual leaders. 

Among the many duties which have left pleasant memories from the moment 
I first set foot in this hospitable and beautiful land, one of the highest and 
pleasantest is to thank the University of Chile for the great honor done me in 
admitting me to honorary membership in its Faculty of Law and Political 
Science. 

I well know the glorious traditions which, in the intellectual order, since 
the middle of the last century, have made the University of Chile one of the 
greatest centres of learning of South America. On this occasion I shall confine 
myself, however, to referring to only two of its many illustrious rectors whose 
names the world has inscribed on its roll of eminent scholars : Bello, inter- 
nationalist, codifier, and litterateur, and Domeyko, naturalist. 

I can fully appreciate, therefore, the distinction done me by the University 
of Chile and by its Rector, and I shall prize it as long as I live. 

In my own name, and in that of the eminent statesman whose mission I 
bear, Senator Elihu Root, I thank you with all my heart for your welcome and 
for the flattering words addressed to my humble self and so little deserved. 

I also want to testify my gratitude for the reception which has been 
accorded me with the affability and generous hospitality so proverbial of the 
courtly Spanish race. 

My visit to these fascinating South American countries has been most gratify- 
ing. There have filed past before my wondering eyes divine panoramas of 
this marvelous continent, fertile valleys, mighty rivers, majestic forests, fantastic 
cordilleras, placid lakes of crystal waters, rushing torrents which keep babbling 
the glorious hymn of liberty. All this has increased my respect and admiration 



APPENDIX V 123 

for the new people and the new races which will mark fresh eras for the 
human race in the great future in store for America. 

The impression I received when I arrived yesterday in your country will 
never be effaced from my memory. The hearts of the people of Chile should 
swell with legitimate pride when they think of their glorious country. The 
fascination of your mountains whose glow, whose balm and harmonies are the 
soul of this land, would bewilder any spectator. The poet Wordsworth has 
said that the voice of freedom is best heard in the mountains and in the sea. 
If this is so, then Chile is the land where the sweet voice of freedom will ring 
in clearest tones. 

I come charged with a message of good-will from your devoted friend, Mr. 
Elihu Root, at whose request, added to my own desire, I have the honor to appear 
before you. I wish I could say to you all that he would say were he here in 
person to address you and to greet you as an old friend. The expressions may 
differ, perhaps, but I assure you the spirit which animates them is entirely the 
same. 

I invite you then, gentlemen, to co-operate in the establishment of interna- 
tional institutions which will be, we hope, centres of good-will which will 
develop and popularize just and progressive principles of international law and 
which will in various ways, directly and indirectly, by an exchange of thought 
and exchange of views and the happy combination of effort, result in strengthen- 
ing the bonds of friendship which a common past, common institutions and a 
common goal suggest and require.* 

Circular Note 

Or the National Society of International Law, 
Santiago de Chile, January, 1914 

[Translation from the Spanish] 

Sir: 

The civilized world is aware of the noble and strong impetus given by Mr. 
Andrew Carnegie to the common effort for universal concord. 

The study and diffusion of international law has been, and still is, one of 
the most efficient means of strengthening . the principles of conciliation, the 
peaceful settlement of differences between foreign nations and the ever increasing 
hope of peace among the states admitted by international law. 

Eminent publicists from every country have enthusiastically welcomed the 
formation of an American Institute devoted to the study of international law, 
and of National Societies in different countries to collaborate with the parent 
institution. 

*NoTE: The asterisks represent that portion of the address which, being a technical 
description of the work and purposes of the Endowment, was necessarily a repetition of 
what was said on that subject at the Ateneo in Montevideo. The translation is not re- 
peated. 



124 MR. BACON'S VISIT TO SOUTH AMERICA 

During the recent visit paid us by Mr. Robert Bacon, on the initiative of 
Mr. Root, an invitation was extended to us to establish in Chile a filial institution 
similar to that constituted in Washington, presided over by Mr. Root, and whose 
Secretary is our distinguished fellow-citizen, Don Alejandro Alvarez. 

The main purpose of the American Institute and of the national societies 
affiliated thereto is purely scientific. 

All political discussion or any idea which is susceptible of influencing 
directly or indirectly the political life of the different nations is excluded from 
the deliberations. 

The regular subject of the programme will be discussed by the Society 
solely from the viewpoint of the doctrine of law involved and of its application. 

The American republics, united by so many common bonds and by the 
democratic character of their institutions, will find to an even greater degree 
than the other nations forming part of the American Institute of International 
Law, a semi-official organ in which to advance their ideas on terms of absolute 
equality, while at the same time becoming acquainted with the ideas prevailing 
in the other republics. They will thus secure a moral guarantee for the conduct 
of their relations, from which will result a closer union within the principles of 
right and justice. 

The nations of this continent need to know one another better. The exchange 
of ideas brings in its train a union of sentiment and the intimate association of 
men and the exchange of principles between the different nations of the New 
World will do much to bring the states into closer harmony. The Society of 
International Law will realize in the vast realm of the mind and culture perhaps 
as much as is accomplished by the Pan-American Conferences in their official 
sphere of action. 

The purposes of the National Society of International Law, of which we 
have the honor to invite you to become a charter member, are the same as those 
of the American Institute of International Law, with the slight differences 
inherent to our national life. 

The National Society of International Law accordingly purposes: 

i. — To contribute to the development of international law, and to compel 
the acceptance of its general principles among nations, and especially 
among those of the American Continent. 

2. — To contribute to the study of the problems of international law, paying 
particular attention to such as are peculiarly American in character, 
and to solve them in accordance with the already generally accepted 
principles, without abandoning, however, the doctrines which Chile 
has always sustained. 

3. — To work toward the codification of international law, in accordance 
with the traditions and doctrines of humanity and of our national 
history. 

4. — To diffuse knowledge of the peaceful means of settling international 
disputes. 



APPENDIX V 125 

The Society will have three classes of members : charter members being 
such as accept the present invitation, regular members such as may join at a 
later date, and honorary members, not to exceed five in number, such as this 
National Society may propose to the American Institute. 

The Society purposes to draft and discuss at general meetings proposals, 
resolutions and decisions relative to any or all of the subjects, comprised within 
the purposes above enumerated. 

Its resolutions will be forwarded to the American Institute, which shall 
take them into consideration at the sessions to be held at least once every two 
years, and to which all honorary members of the Society shall be invited. 

The Society shall have a Board of Governors for the management of 
its affairs. 

The fees shall be twenty-five pesos per annum. 

If you should be of opinion that this invitation is worthy of your acceptance, 
we should be obliged to you if you would return the enclosed form duly signed. 

We have the honor to be, etc. 

Luis Barros Borgono, Domingo Amunategui S., 

Antonio Huneeus, Ricardo Montaner Beeeo. 



APPENDIX VI 
Peru 



Address of Dr. Romero, 

Dean oe the Faculty oe Jurisprudence oe the University oe San Marcos, 

Lima, November 6, 1913 

[Translation from the Spanish] 

Gentlemen: 

The Carnegie Endowment for International Peace which aims to promote 
and further this idea, has named the Honorable Robert Bacon, formerly Secretary 
of State and x\mbassador of the United States to France, as its delegate on this 
mission of peace and brotherhood. 

In 1910 Mr. Andrew Carnegie donated the sum of ten million dollars in 
order that the Trustees named by him should apply them to the purposes of the 
Endowment. These purposes have been expressed by the Trustees as follows: 

The scientific investigation of the causes of war and the practical methods 
to prevent or avoid it; to train public opinion regarding the causes, nature and 
effects of war; to establish a keener appreciation of international rights and 
obligations, and to quicken the sense of justice among the inhabitants of 
civilized countries ; to promote a general acceptance of peaceful means for the 
settlement of international disputes ; to promote sentiments of friendship among 
the peoples of different countries and to increase the knowledge and common 
understanding among nations ; to aid in the development of international law 
toward a universal agreement as to its laws; to aid such organizations or 
societies as may be needed in the advancement of the objects of the Endowment. 

The great philanthropist, Carnegie, not only conceived this beautiful idea, 
but furnished the means to realize it by donating a sum hitherto unheard of for 
such purposes and perhaps not even imagined in the wildest fancy. By this 
means he made that generous purpose a practical one and contributed most 
efficiently towards stopping war or at least mitigating its horrors. 

The idea is indeed a lofty one, worthy of American genius, the creator of so 
many colossal enterprises, that genius which has made the United States of 
America great in its power, in its wealth, in its territorial expansion, and in 
the eminent men whose rapid rise in science, in the arts and in statecraft has 
been the wonder of the age. 

If the Americans have been the first in peace and the first in war, they are 
now, through the generosity of a multi-millionaire, setting on foot a movement 
which will lead them to be the first in the hearts of those countless victims whom 
they will save from one of the worst scourges that has so often been visited 
upon the world. 



APPENDIX VI 127 

As apostle of this mission of harmony and brotherhood, as messenger of 
this Christian and civilizing purpose and as leader of this idea which quickens 
every heart, there is with us to-day a great statesman, a man pre-eminent for 
his learning, contact with whom reveals the power of his mind and the bigness 
of his heart. 

I present him to you, Mr. Rector, and my esteemed colleagues. 

He is not unknown to you. A graduate of Harvard, he is to-day one of 
her Trustees and a Fellow of that institution. It is not, then, merely in obedience 
to the mandates of courtesy that he is among us to-day. He is here by virtue 
of his academic titles and of his position in shaping the destinies of a great 
centre of learning, of far greater renown than our own. 

It was only a short time ago that he directed with rare skill the foreign 
affairs of the greatest of republics ; yesterday he was Ambassador to one of the 
European nations, and to-day, coming as ambassador of the most noble mission 
known to me of goodwill, he stops for a little while in the oldest university of 
this continent, in the ancient institution founded by Charles V in 1551, which 
is pleased to welcome, even though it be for a brief moment, one of the favored 
sons of the greatest of our sister institutions. 

But apart from this motive for satisfaction, our University wishes to have 
the honor of counting him among her own members, and that his words be 
engraved on these walls, which still resound with the echo of the words of our 
most learned educators and greatest public men. 

Mr. Bacon is going to do us the honor of- explaining personally the object 
of his mission, so that we may have the benefit of hearing from his own lips 
the important message he bears. He has also consented to pay the Faculty of 
Jurisprudence of this University the very high honor of becoming an honorary 
member. 

Distinguished Sir: Welcome to our University, and, as herald of the noble 
idea of peace and brotherhood, take back to your mighty nation our message 
of sympathy and admiration for the work of the great Carnegie, which is being 
so ably carried out through the wise direction of its Trustees, and of our 
abiding faith in its final success through the vigorous impulse of such eminent 
men as Mr. Root and Dr. Scott, and your own undaunted efforts. 

Address of Mr. Bacon 

[Translation from the Spanish] 

Mr. Rector, Gentlemen: 

You will pardon me, I know, if on this historic spot before such a distin- 
guished gathering of leaders of thought and men of letters, I make bold to 
address you in the beautiful Castilian tongue, so sweet, so rich and so sonorous. 
Would that I could command it in order to make you feel my own thoughts: 
the intense sentiment of sympathy that fills me on appearing before such a 
distinguished body, no less than my deep gratitude for the signal honor done me 



128 MR. BACON'S VISIT TO SOUTH AMERICA 

by the University of San Marcos, this pioneer institution of the New World, 
in conferring upon me the diploma of honorary member of its Faculty of 
Jurisprudence. 

I value this great honor done me by the University and by its distinguished 
Rector with all my heart and in all its worth, and I shall prize it as long as I 
live. The fame of your institution in the world of science and letters is 
both well merited and glorious, and I am proud to belong to such a high and 
distinguished centre of culture. 

In my own name and in that of the great statesman whose mission I bear, 
Senator Elihu Root, I thank you, Sir, most heartily for your kind words. The 
hospitable reception given me by the people of Peru, gracious queen of the 
Andes, land of the Incas, has filled me with joy. 

Those august emperors represent the inspiring past, brimming with mystery 
and splendor, and the vast resources of your beautiful land and its chivalrous 
race presage a future no less glorious and brilliant. 

The condor, symbol of liberty, soaring in dizzy heights, delights his piercing 
gaze by contemplating this free and prosperous country progressing toward the 
ideal of all peoples — peace and prosperity. 

On arriving in this land of sunshine, I am moved with admiration; I feel 
happy when I breathe the balmy air of your mountains, when I contemplate 
your majestic Andes as they encircle this beautiful Peru in loving embrace. It 
is a real pleasure to me to visit if even for a few days, fewer than I would 
wish, this noble country whose history has always attracted me from my early 
youth. 

I come charged with a message of goodwill from your devoted friend and 
great admirer, Mr. Elihu Root, at whose request, added to my own desire, I have 
the honor to appear before you. I wish I could say to you all that he would say 
were he here in person to address you and to greet you as an old friend. The 
expressions may differ, perhaps, but I assure you the spirit which animates them 
is entirely the same. 

On his behalf I invite you to cooperate in the establishment of international 
institutions which will be, we hope, centres of goodwill which will develop and 
popularize just and progressive principles of international law, and which will 
in various ways, directly and indirectly, by an exchange of thought and exchange 
of views and the happy combination of effort, result in strengthening the bonds 
of friendship which a common past, common institutions and a common goal 
suggest and require. * * * 

The sentiments of solidarity and fraternity which united the countries of 
the New World in a community of interests should create a work of union and 
concord. The way is already open; numerous and fruitful results have been 
obtained; the time has come, therefore, to establish in ever increasing measure 
good understanding and harmony. Above all, it is necessary to correct the mis- 
understanding of the South of the political purposes of the United States. You 



APPENDIX VI 129 

will recall the solemn declaration of my eminent chief, Mr. Root, at the Third 
Pan-American Conference held at Rio de Janeiro: 

"We wish for no victories but those of peace ; for no territory except our 
own; for no sovereignty except the sovereignty over ourselves. We deem the 
independence and equal rights of the smallest and weakest member of the family 
of nations entitled to as much respect as those of the greatest empire, and we 
deem the observance of that respect the chief guaranty of the weak against the 
oppression of the strong. We neither claim nor desire any rights, or privileges, 
or powers that we do not freely concede to every American republic. We 
wish to increase our prosperity, to expand our trade, to grow in wealth, in 
wisdom, and in spirit, but our conception of the true way to accomplish this is 
not to pull down others and profit by their ruin, but to help all friends to a 
common prosperity and a common growth, that we may all become greater and 
stronger together." 

President Roosevelt, in his message to Congress in December 1906, stamped 
these memorable words of his Secretary of State with his approval, and declared 
that they faithfully represented the sentiments of the American people. These 
same words still represent the sentiments, the ideals of the people of the United 
States with the same truth, the same force as when they were spoken seven 
years ago. I like to think of this memorable declaration as the "Root Doctrine" — 
a doctrine of sympathy and understanding, of kindly consideration and honorable 
obligation — and I am proud to be considered worthy to speak of it as an humble 
apostle. Our country desires above all that peace and prosperity should reign 
in Latin America. * * * 

The name of the institution I have the honor to represent, the Carnegie 
Endowment for International Peace, at times creates an erroneous impression 
as to the cardinal purposes of the Endowment, as also to the means used in 
attaining it. The Endowment might well be called an Endowment for Inter- 
national Friendship for where friendship and good understanding between 
nations exist peace is the natural consequence. The specific ends which the 
Endowment pursues may then be summarized as follows: 

To foster the ties of friendly relationship between nations, and the develop- 
ment of international law. These two purposes are closely interwoven : each 
is the cause and effect of the other. 

In working along these lines the Endowment does not hold itself out as a 
missionary of peace, nor does it try to preach its own ideas in the world, but 
it strives to encourage in each country those national activities which tend toward 
the attainment of international friendship and the development of international 
law. The means it employs and proposes are practical means. 

These purposes and objects fall naturally into three groups: One which 
treats of the creation of public opinion in favor of the peaceful settlement of 
international differences; another of the investigation and study of the causes 



130 MR. BACON'S VISIT TO SOUTH AMERICA 

of war; and the third of the principles of right and justice which would settle 
and prevent the controversies that have embittered the relations between countries 
in the past. * * * 

Address of Sefior Tudela y Varela, Minister of Foreign Affairs, 

At a Banquet Given by Him for Mr. Bacon, 
Lima, November 7, 1913 

[Translation from the Spanish] 

Mr. Bacon: 

It is with very great pleasure that I tender you this banquet on behalf of 
the Government of Peru, which fully appreciates the high purpose of your visit. 

Skilled diplomat, formerly Secretary of State and Ambassador to France, 
distinguished member of the Board of Trustees of Harvard University, advocate 
of right, you represent the highest order of thought in your country. 

The success of your civilizing and humanitarian mission will undoubtedly 
be in keeping with these exalted titles, not only on account of the renown they 
represent in themselves, but because our Western World has always been eager 
to encourage every noble and generous effort. 

You may rest assured, Mr. Bacon, that the ideals of the American Institute 
of International Law will find here the warmest of welcomes. Peru may proudly 
boast that she has proclaimed these ideas at every moment of her history, and 
she entertains the hope that they will some day effectually prevail, overcoming 
the inevitable obstacles with which human frailty has blocked the path of the 
complete triumph of right. 

I beg that the ladies and gentlemen will now join me in my wishes for the 
happiness of our distinguished guest, that of his charming family and for the 
prosperity of his great country. 

Response of Mr. Bacon 

[Translation from the Spanish] 

Ladies, Gentlemen, Mr. Minister: 

I thank you with all my heart for the flattering words in which you have 
referred to my humble self, for the courteous expressions touching my country 
and for this charming dinner offered me by your Government. I likewise wish 
to repeat my profound thanks for the cordial welcome I have received from you, 
Mr. Minister, and from your fellow-citizens, with the generous hospitality so 
characteristic of your gallant Spanish race. 

The sympathy you have shown for my mission and your cordial promise 
of support fill me with gratitude, with joy and with hope for the future. I 
assure you that your friendship, your goodwill and your support are invaluable 

Note: The asterisks represent parts of the address, which were devoted to a tech- 
nical description of the work and purposes of the Endowment and necessarily a repetition 
of what was said on that subject at the Ateneo in Montevideo and at the University in 
Santiago. 



APPENDIX VI 131 

to us ; if I may be permitted to borrow your expression, "they are worth a Peru 
to us." 

We Americans of the North are proud of our progressive sisters of the 
South. Among these the noble and charming Republic of Peru takes a 
prominent place, both on account of the culture of its people, the virility of its 
race, the purity of its language, the progress of its present civilization, its 
marvelous history and the mysteries of its past civilization. 

We know that this country is, in the language of the poet, "chest of early 
treasures, precious storehouse of the royal earth." The Andes and the Pacific 
encircle it in loving embrace, and the brave, noble and enterprising character 
of the Peruvian people derives its nobility from the majestic ocean and the 
towering mountains that surround this land. 

When the Panama Canal has been completed, Peru will begin a new chapter 
in her history. Through this canal, the marvel of modern engineering, the ships 
of commerce will pass and scatter, like soldiers, to invade your ports ; immigration 
will follow, and the European races will contribute to the development and 
growth of the agriculture, industry and commerce of this beautiful land of 
Peru, and to the opening up of its untold resources. 

We entertain the very best wishes for your prosperity. We are happy in 
the thought that the relations of the past redound to the credit of our common 
continent; we are proud of the traditional friendship of Peru and the United 
States and we hope that these good relations will not only be perpetuated but 
strengthened in the future, and that with each added year our relations will 
become more intimate, more confidential, in a word, more fraternal. And this is 
to be expected from the members of one great family, inhabiting the same con- 
tinent, having the same ideals and with the same destiny. 

We hope that this beautiful land of the Incas will continue along the path 
of welfare and progress, and that its future may grow every day happier and 
brighter. 

Gentlemen : To the Republic of Peru, to our illustrious host and to the 
distinguished ladies who have honored us with their presence. 

Remarks of Sr. Luis G. Rivera, 

At a Reception at the Centro Universitario, 
Lima, November 7, 1913 

[Translation from the Spanish'] 

Mr. Bacon: 

The Centro Universitario, representing the university students of Peru, 
is highly honored to receive you in its modest quarters. The student body, 
which knows what you have accomplished, which has followed your progress 
and which admires the energy and greatness of your people, begs you before you 
leave this capital to stamp in this humble house, inhabited by students who profess 
the same cult as you do, a mark of your friendship, to speak a few words of 



132 MR. BACON'S VISIT TO SOUTH AMERICA 

hope and encouragement to the youth of Peru who love truth, respect justice 
and ardently desire that the supreme blessing of peace may triumph over petty 
interests and momentary differences. 

Mr. Bacon, when you return to your great university, take with you our 
affectionate greetings to the students of North America; tell them that here in 
the land of the Incas they have many comrades and friends with the same ideals, 
the same enthusiasm; and you, eminent master, be assured that as you toil in 
the fulfilment of your task you will have our steadfast cooperation; bear in 
mind that the youth of Peru stand ready to share your noble labors and to sustain 
unflinchingly the doctrine of peace, white as the snow-capped crests of the Andes. 

Address of Dr. Manuel F. Bellido, 

At a Reception oe the Bar Association, 
Lima, November 8, 1913 

[Translation from the Spanish] 

Gentlemen: 

The Colegio de Abogados of Lima is honored in extending an honorary 
membership in its body to Mr. Robert Bacon who comes to us preceded by the 
fame of his high attainments. This fame has already reached you, and so you 
are aware that the present Trustee of the University of Harvard, former 
Secretary of State and Ambassador to France is now fulfilling a most important 
mission in the service of the noblest of causes : peace among civilized nations. 

The beautiful ideal conceived by the great philanthropist, Mr. Andrew 
Carnegie, has led him to make an endowment of ten million dollars to further 
its realization. This great purpose may or may not be attained in a more or 
less remote future, but Mr. Carnegie has by his noble deed already earned the 
applause of all men of goodwill. 

The Trustees in charge of administering this generous gift, organized a 
corporation whose purposes are as follows : 

(a) To promote a thorough and scientific investigation and study of the 

causes of war and of the practical methods to prevent and avoid it. 

(b) To aid in the development of international law, and a general agreement 

on the rules thereof, and the acceptance of the same among nations. 

(c) To diffuse information, and to educate public opinion regarding the 

causes, nature, and effects of war, and means for its prevention and 
avoidance. 

(d) To establish a better understanding of international rights and duties 

and a more perfect sense of international justice among the inhabitants 
of civilized countries. 

(e) To cultivate friendly feelings between the inhabitants of different 

countries, and to increase the knowledge and understanding of each 
other by the several nations. 



APPENDIX VI 133 

(/) To promote a general acceptance of peaceable methods in the settlement 
of international disputes. 

(g) To maintain, promote, and assist such establishments, organizations, 
associations, and agencies as shall be deemed necessary or useful in 
the accomplishment of the purposes of the corporation, or any of them. 

The illustrious Mr. Bacon has been commissioned by the Carnegie 
Endowment to further the realization of this attractive program. 

There are many who believe the abolition of warfare among civilized nations 
to be a Utopian dream, but even to these the purposes of the Endowment must 
command not only their sympathy but their cooperation as well, since, as Mr. 
Bacon said yesterday at the University of San Marcos, we may call the Carnegie 
Endowment an endowment for international friendship. Let us all cooperate 
toward that friendship, and peace must necessarily result. 

And if this result is only a Utopian dream, let us at least hold on to it as 
one of the ideals of humanity, so that it may be a comfort to us on our pilgrimage, 
and may support our faith in the efficacy of our labors. If, on the other hand, 
peace among civilized nations becomes a splendid reality, let us not stop to 
determine the date of the triumph; this will be the work not of individuals but 
of nations ; the men of the present generation will not see it, but their posterity 
will enjoy its blessings. Let us not lose heart; rather let us toil as he who sows 
the acorn, not for ourselves but for those who come after : let us do our part for 
the benefit of future generations. 

Mr. Bacon, one of the objects of your mission is that of "aiding in the 
development of international law and a general agreement in the rules thereof, 
and the acceptance of the same among nations". The members of this association, 
by reason of their profession, are bound to work toward the advancement of 
this division of the science of law, and it is my hope that they will give it due 
consideration. 

We have been pleased to confer on you, who have made a special study 
of this branch of the law, the title of honorary member of our association, and 
your acceptance honors us. Your name will take its place with other illustrious 
men, such as that of the eminent Elihu Root, and be an ornament to this 
institution. 

Mr. Bacon, I confer upon you an honorary membership in the Bar Asso- 
ciation of Lima. 

Address of Dr. Anibal Maurtua 

[Translation from the Spanish] 

Gentlemen: 

This respected Bar Association of Lima has just performed an act 
of appreciation by extending an honorary membership to Mr. Robert Bacon, the 
eminent North American statesman, who, in fulfilment of the mission entrusted 



134 MR. BACON'S VISIT TO SOUTH AMERICA 

to him by the Carnegie Endowment for International Peace, has done us the 
honor of a visit. 

The day before yesterday in the course of a notable address which Mr. 
Bacon delivered on the occasion of being admitted as an honorary member of 
the Faculty of the University of San Marcos, he set forth in detail the purposes 
and aims of the Endowment. 

The Carnegie Endowment is not a society devoted merely to peace 
propaganda ; it is a scientific institution which, to quote from the words of 
the Honorable Elihu Root at the first meeting of the Trustees on December 
14, 1910, will seek to obtain a clear perception of the social diseases of humanity, 
"one of which is war." One of its chief aims is the investigation of the causes 
of war and its effects on both neutrals and belligerents in order that it may 
be always in a position to recommend what measures should be adopted to prevent, 
as far as possible, appeals to force. The Carnegie Endowment, in a word, 
is a highly civilizing institution entitled to universal respect. 

Mr. Bacon, you may take with you to the founder and to the Trustees 
of the Endowment the assurance that here in Peru we shall earnestly second 
the humanitarian aims of your institution. This duty is imposed upon us, 
not only because of the high purposes of human harmony and brotherhood which 
it pursues, but by reason of the great strides which will be made in our rela- 
tions with the United States of America, Europe and Asia, so soon as the 
Isthmus of Panama is opened to the traffic of the world in 191 5. 

Gentlemen, we should not be unmindful of the influence that has been 
exercised by two notable American events in the social, economic and political 
life of the other nations of the world. In the first place, the discovery of 
the New World changed the trade-routes and the political power of Europe, 
Africa, and Asia; they were shifted from the East to the West. Secondly, 
the independence of America made a deep impression on the destinies of 
humanity. Independent America introduced religious freedom, which the Old 
World has since followed. Free America, furthermore, created democratic 
institutions which are to-day being copied by the monarchies of Europe. With 
its political freedom won, America then began assimilating immigration and 
formed the sub-races of the Yankee in the North and the Creole in the South, 
granting them the fullest measure of civil and political rights, to a degree not 
yet obtained by certain human races. America affords the opportunity for 
the enterprising, without regard to station or caste, to amass huge fortunes 
which have broadened the vision of their owners to undertake tasks similar 
to that begun by Mr. Andrew Carnegie, the Scottish philanthropist and millionaire, 
who came to the United States in 1848. Lastly, this continent has been the 
place where the principle of arbitration, as the means of preventing war, has 
always been proclaimed and enforced. 



APPENDIX VI 135 

The opening of the Panama Canal, which will constitute the third great 
American event, will undoubtedly exercise even greater influence in the de- 
velopment of the commercial and political relations of Europe and Asia. 

In the relations between the two portions of this continent, the Canal 
will be a powerful instrument for education, for the sentiment of Pan-American- 
ism, and for the political conscience of Latin America. In North America 
education is free; it has reached a marvelous degree of development and has 
raised the moral and intellectual level of the working and producing classes. 
There education is the greatest factor in earning a livelihood. In South Amer- 
ica, our line of thought is in some respects still European, which works to 
the detriment of the people's welfare. 

Again the Pan-American spirit has not been developed in all the States 
of this continent, notwithstanding the fact that the Monroe Doctrine and the 
leadership of the United States have opened the way to the development of 
these nationalities. 

Lastly, our aspirations and our thoughts are not wholly American, nor 
have we any idea of the role we should play in the world balance of power. 

The Carnegie Endowment with its complete educational, economic and 
political program, looking forward to the events of the future, presents a 
full picture of Pan-Americanism in its general outline. For the future guid- 
ance of these nations and for the political balance of power between Europe 
and America it has two qualities to commend k : The assurance of the national 
sovereignty of each of the States of this continent and the progress of com- 
merce and intellectual intercourse which, as every American earnestly hopes, 
will put an end to warfare. 

Response of Mr. Bacon 

[Translation from the Spanish'] 

Gentlemen: 

The many marks of attention which I have received at the hands of the 
cultured society of Lima, together with those offered me by the Government 
and the honorable associations of your intellectual world, fill me with sincere 
and lasting gratitude. 

I feel honored that the sympathy which my mission and my university 
have awakened in you should have led your famous Bar Association to confer 
on me the very precious title of honorary member. I assure you that I prize this 
distinction in all its worth. I feel very highly honored, members of the 
Peruvian Bar, to be able to call myself your fellow-member. 

The day before yesterday I set forth briefly the main purposes of my 
visit here. In compliance with the gracious invitation given me, I shall now 
speak at greater length of one of them, perhaps that which will be the 
greatest force in promoting the work of Pan-American intellectual union. 



136 MR. BACON'S VISIT TO SOUTH AMERICA 

I refer to the support to be given to the American Institute of International 
Law and the formation of National Societies of International Law. 

"Ubi societas, ibi jus" — Where there is a society of nations there is a 
law of nations. As the society grows or changes, the law is developed or 
modified to meet the new or different needs of the society. A nation cannot 
exist and fulfil its mission separate and apart from the society any more than 
man can live in isolation. This has been so in all ages of which history has 
furnished us a record; it is so evident, indeed, that Aristotle felt justified in 
saying that man was a political animal, for men tend to form a society, 
however large or small, and organize themselves on a large or small scale 
for a political purpose. 

As with the man, so with the nation. It cannot exist of and for itself ; it is 
a political unit, a body politic, or a moral person. It is either a member of 
the society of nations which has naturally resulted from the mere existence of 
nations, the needs of mutual intercourse, or the nation is admitted into 
membership of the society of nations, as is the case with every country of 
the American continent, upon its application or its recognition as a member 
by the international society. By such membership each and every nation 
acquires the rights which each nation possesses in an equal degree. Each 
nation is equal in and under the law, and at one and the same time becomes 
subject to the duties imposed by the law, for rights and duties are correlative 
terms. The right of one is the right of both; the duty of each is to respect 
the right of each and of all. But independence does not and should not mean 
the right and the power to act without reference to the other members of the 
society; for a failure to respect the rights of others is the violation of a 
duty; if unchecked, it results in anarchy which is incompatible, not merely with 
the progress and well-being of the members of the society, but with the con- 
tinued existence of the members. Such a state of things is impossible among 
men; it is equally impossible among nations. We are far removed from the 
condition of things which Hobbes could define as a "bellum omnium contra 
omnes," even although the law of nations is neither so developed nor so ade- 
quate as the internal or municipal law of each and every member of the 
society of nations. 

While we can accept the principle of equality without qualification, we must 
understand independence in the sense that a nation is not and cannot be free 
to act in violation of the rights of other nations, just as individual men and 
women renounce absolute and unrestrained freedom of action in order that 
their rights shall be observed and protected as well as the rights of others. Inde- 
pendence thus shades, necessarily, naturally and imperceptibly into interde- 
pendence, without, however, questioning the equality of each nation and its 
freedom from intervention on the part of others. 

What is this law of the society of nations which every nation acknowl- 
edges and applies or should apply in its relations with other members of the 



APPENDIX VI 137 

society of nations ? Without attempting to define this law — for my present pur- 
pose is to state its existence and the necessity of its existence — it may be said 
that the law referred to is international law, which has come into being to 
meet the needs of nations. Once the possession of the few — the canonists and 
philosophers, the jurists and the statesmen — it has become the possession of 
the many. It is no longer to be gathered exclusively from the usages and 
customs of nations to be found in the archives of foreign relations, but it 
exists in systematic form, in the works of Wheaton, to cite an authority of 
the United States, and in the elaborate and authoritative treatise of the South 
American author, Calvo, and in the works of other leading authorities. 

In former times, when a special class of the chosen few governed the 
nation and directed its foreign relations, it was, perhaps, not necessary that the 
law of nations should have been studied and its principles mastered by the many. 
But a change has come over the world in the last hundred years and more. To-day 
in the case of every empire, kingdom or republic, the ruler is responsible to 
the people for whose benefit government is and must henceforth be administered. 
The people of each and every country have become masters of the situation, 
and we must educate our masters, not merely as to their rights as to which 
they are tolerably well informed, but as to their duties, as to which we all 
need enlightenment. The people at large possess the power and the duty 
to influence foreign relations, and as the people are in the end responsible 
for the correct and enlightened conduct of foreign affairs, and as they suffer 
the consequences of the mistakes of government, it follows necessarily and 
fatally that they must fit themselves for the responsibility which they cannot 
avoid, by a broad and extended acquaintance with the principles of international 
law. 

It cannot be expected that every voter will become an international lawyer, 
and it is not necessary that every voter should. It is, however, vital that large 
classes of the people should take an interest in the law which controls inter- 
national intercourse and by which the rights and duties of nations are to be 
tested. It is only through a knowledge of international law that a just public 
opinion can be formed on questions of foreign policy, and, as public opinion 
fashions foreign policy, it needs no argument that a knowledge of the prin- 
ciples of international law should be sufficiently disseminated in order to form 
public opinion, on enlightened lines, in each and every nation belonging to 
the "Society of Nations." 

The expression "Society of Nations" has been used as more accurate and 
significant than the "Family of Nations," but in a large and generous sense, 
the idea of a family applies with peculiar force and suggestiveness to the 
twenty-one republics of the Western world, alike in their origin, having similar 
forms of government and identical in their hopes and aspirations. 

Confining ourselves to what may be called the American problem, how 
can we develop international law in such a way as to make it meet the growing 



138 MR. BACON'S VISIT TO SOUTH AMERICA 

needs of the twenty-one American republics ; how can we formulate the rules 
of law which are necessary to decide our problems ; how can we conduct our 
mutual relations in such a way as not to disturb the harmony that should exist 
among the members of one and the same continent, and how can we bring a 
knowledge of these matters home to the classes that form public opinion in 
each and every one of the twenty-one American republics? 

The Pan-American conferences may be trusted to continue; the regular 
and periodic exchange of professors and students may be, and we hope, 
will be inaugurated, the knowledge of the institutions and of the contributions 
of each nation to the common good may become general; the visit of repre- 
sentative men may and will tend to create and promote social intercourse, but 
the relations of nations, considered as such, depend upon an understanding 
and dissemination of just principles of law and their application to disputes 
which are bound to arise among members of one and the same family. 

How can this law be developed? How can these principles, when found 
and formulated, be best disseminated? These are questions which must be 
answered and upon the correct answer depends in large part the future rela- 
tions of the American nations. 

It needs no argument that a law to affect all must be made by all, that is 
to say, it must be the result of cooperation. The law of nations is not the 
law of any one nation; it is not made by any one nation. It is not imposed by 
any one nation, it cannot be changed by any one nation. 

The law may be codified where it exists, and created where it does not 
exist by the action of governments, just as the American States have pro- 
posed to do, and have actually begun the work in a meeting of American 
jurists held at Rio de Janeiro in June of last year. But governments move 
slowly, and when they move too rapidly and in advance of public opinion 
their work does not last. Is there not a place for private, that is to say, for 
scientific cooperation among the publicists of America? A private body of 
Europe, the Institute of International Law, founded in 1873 on the suggestion 
of the distinguished North American, Francis Lieber, and of which Institute 
the distinguished South American, Calvo, was a founder and an ornament, 
has done more than any single agency to develop international law. Its 
drafts in various phases of international law, its resolutions, its statement of 
old as well as of new law have been accepted by specialists and its various 
projects have been adopted by governments because of their value and prac- 
tical worth. Slowly and tentatively, scientifically and unerringly it has solved 
problem after problem and produced model after model of correct codification. 
Much of its work has been adopted by The Hague conferences, notably the 
code of arbitral procedure, the code of land warfare, the suggestion of a court 
of prize, and it is not too much to say that it made possible the work of The 
Hague. It prepared the way and furnished model drafts which could be 
accepted with only slight modifications by the conferences. The patient labor 



APPENDIX VI 139 

of an unofficial society, composed of publicists representing science, not gov- 
ernments, furnished not merely the form but the substance for the official 
conference. It is hardly open to question that an official codification of inter- 
national law must be preceded by the careful, patient, inconspicuous labor and 
devotion of scientists, if the codification is to state just principles of law which 
the "Society of Nations" can adopt instead of a compromise of conflicting in- 
terests and views of the governments. 

Is there not room for an American Institute of International Law, com- 
posed of an equal number of publicists from each of the American countries, 
which can do for our continent what the older Institute has done for the 
world in the last forty years? Could not this American Institute work in 
friendly cooperation with National Societies of International Law in every 
American capital? Could not these National societies bring together all per- 
sons interested in international law, create this interest where it does not 
exist, and form a center in each country for the study and popularization of 
international law? 

The American publicists thought so, and they have established the Amer- 
ican Institute of International Law, after conference with and upon approval 
of leading publicists of the Continent. The members of the older institute 
thought so, as is evidenced by their warm and unsparing praise of the pro- 
posal; and such is the opinion of the distinguished North American states- 
man, Elihu Root, who has accepted the honorary presidency of the Institute. 

In an address at the opening of the Twentieth Peace Congress in The Hague 
during the month of August, the distinguished Dutch publicist, Professor de 
Louter, referred to the three hopeful and encouraging events of recent date, 
all three of which are of American origin. The first was the codification of 
international law proposed by the Pan-American Conferences and actually begun 
by the Congress of American jurists which met in Rio de Janeiro in June, 1912; 
the second was the formation of the American Institute of International Law, 
proposed and founded by the happy cooperation of South and North Amer- 
ican publicists ; the third was the creation and proposed activity of the Carnegie 
Endowment for International Peace. 

Let me dwell for a few moments on the question of National Societies, 
which are to be formed and affiliated with the Institute, whose members are 
chosen from the members of the National Societies. The older Institute con- 
templated National Societies but none was formed until after the founding of 
the American Institute. 

In February of the present year the French Society of International Law 
was founded. 

If a National Society is needed in France and can perform useful work, it 
is fair to presume that such a National Society may be formed in each of the 
American Republics and that it can justify its existence by useful and construe- 



140 MR. BACON'S VISIT TO SOUTH AMERICA 

tive work in the country of its origin. The French Society issues a modest 
bulletin. This could be done by each American Society and the interchange of 
the different bulletins would keep all of the National Societies informed of the 
work done by the others. A large and comprehensive Review of International 
Law would not need to be founded or supported by the American Institute, as 
the American Journal of International Law, now issued in a Spanish transla- 
tion by the American Society, could be modified so as to fit it to be and to 
make it the organ of the Institute without additional expense and without any 
cost to the Institute. It could be distributed to the members of the Institute 
and to the members of the National Societies so that the International Society 
would thus have an international journal and each National Society a national 
bulletin. All workers in the field of international relations would be brought 
into close and intimate relations, and instead of isolated activity, all would 
press forward together towards a common goal, and international law would 
be developed, expounded and popularized by the nations of a continent. 

Let me indicate, in closing, how the American Institute can help the Car- 
negie Endowment in its great and peaceful mission. The older Institute was 
requested to act as advisor to the Endowment's Division of International Law. 
It accepted the invitation and appointed a committee composed of the most 
experienced and illustrious of European publicists, so that the Division has 
the advantage of the best advice that Europe can furnish as to what it should 
undertake and as to the method of execution. 

As the Institute has performed, and performs, incalculable services, the 
Endowment makes a generous subvention to the Institute which is employed 
in part in meeting the travelling expenses of the members of the Institute, which 
does not meet in any fixed place but holds its meetings from year to year in the 
different countries of Europe, and also in part in paying the expenses of its 
commissions, and in the preparation and publication of its valuable reports. 

If the American Institute is firmly established, with the national and 
affiliated societies, cannot the American Institute be asked to act as advisor 
to the Endowment's Division of International Law on all problems of an Ameri- 
can nature and all undertakings affecting America, and may not the Institute 
justify such financial support as may be needed to be expended in the same way 
as the subvention to the European Institute? 

I am specially instructed by Mr. Root, Honorary President of the American 
Institute of International Law, and President of the North American Society 
of International Law, to urge you to help the American Institute to perform the 
mission for America and for the world that the European Institute performs 
for Europe and the world, and to urge you to form a National Society of Inter- 
national Law, affiliated with the American Institute. 

If you join us in this work of intellectual union, if the Latin American 
countries and the United States unite in a constant effort for the improvement 
of the relations between nations, if all the countries of this hemisphere work 



APPENDIX VI 141 

in unison toward a common ideal, there will then be created a powerful force 
for good, which cannot fail to benefit our continent, the world and humanity. 

In conclusion, I wish to express the most loyal sentiment of high regard 
which I have for this illustrious Association, a worthy representative of the 
Peruvian Bar, and to voice my hope that justice and right may ever prevail in 
this land as the safeguard to the rights of its citizens. 

Remarks of Sr. Jose Balta, 

At a Reception oe the Geographical Society, 
Lima, November 8, 1913 

[Translation from the Spanish] 

Mr. Bacon: 

It is a source of great satisfaction to me to present to you this diploma 
accrediting you as honorary member of our Geographical Society. 

The motto of the institution you represent applies to every association of 
men of science, who, without forsaking their countries, work on behalf of 
humanity; it is, moreover, particularly fitting to geographical societies that 
consider the Earth merely as an organism in constant evolution through the 
ages, and the human race as a group of like beings which neither the color of 
the skin, not the configuration of features suffices to divide into radically differ- 
ent, and, much less, hostile, groups. 

In the conception of the fatherland by the -world of science it is possible 
to have all boundary lines and all race prejudices blotted out and so bring about 
sincere friendship between nations. 

Welcome to our modest institution which I wish might bear the motto of 
the Smithsonian Institute, that other grand North American creation: "The 
increase and diffusion of knowledge among men," side by side with the words 
that embody the programme of the Carnegie Endowment : "Pro patria per orbis 
concordiam." 

Response of Mr. Bacon 

[Translation from the Spanish] 

Permit me, gentlemen, to express my sincere thanks for your cordial 
words regarding my mission and myself, and for the special distinction you 
have done me in conferring upon me an honorary membership in your Society. 
I am deeply touched, by this evidence of friendship, which, I assue you, I highly 
appreciate. 

The objects of your Society are peculiarly attractive to me. The investi- 
gation of problems and geographical mysteries is not only a fascinating and 
invaluable study in itself, but the diffusion of geographical knowledge has 
knit nations together in closer bonds and has contributed to the spread of civili- 
zation, and, hence, of international friendship and international sentiment. 



142 MR. BACON'S VISIT TO SOUTH AMERICA 

It is fitting, it is necessary that nations should grow together, should work 
to help to spread civilization. No nation, no human being for that matter,- can live 
for and to itself, and the co-operation of nations is as essential to the progress 
of the world as the co-operation of individuals is to the progress of society. 

Geographically, America is a unit; industrially, its members live in closer 
contact every day; and, intellectually, each member should contribute to the 
knowledge and to the progress of all. 

Again I thank you, gentlemen, for your courteous welcome and the honor 
done me. 

Remarks of Dr. Romero, 

At a Banquet or the Faculty or the University oe San Marcos, 
Lima, November 9, 1913 

[Translation from the Spanish'] 

Gentlemen: 

I have no set speech worthy of the distinguished personage we are honoring 
and of the importance of the mission he bears ; and I have not prepared a speech, 
because, sharing the opinion of my colleagues, I thought that a set speech was 
out of place when honoring one of our own. And, so, it is, in truth, gentlemen : 
we are tendering this banquet to Mr. Bacon because he has done us the honor 
of accepting an honorary membership in our Faculty: we are celebrating an 
occasion of great significance to us. 

It is an ancient custom to celebrate momentous events and occasions of 
special importance with banquets. It was intended thereby to furnish moments 
for closer intimacy, to realize materially what already existed through the com- 
munion symbolized by the fraternity of souls having the same ideals and aspiring 
to identical ends in everything which is great or good. 

With this banquet we celebrate the high honor done us by Mr. Bacon; we 
seek to express our happiness at his becoming a member of our Faculty; and 
seated at the same table, free from an exacting ceremonial whose bounds we 
could not pass, tell him how great is our regard for him, how happy we are at 
the thought that the distinguished member of a great University of the United 
States has seen fit to visit our country and to set forth in lucid speech the pur- 
poses of his high mission. If it was out of place, therefore, to deliver a set speech 
because one of our own members had sat down at his own table ; if his arrival is 
the occasion for spontaneous welcome to be shown by manifestations of sincere 
affection, then it is proper that we should give this outward proof of our joy, 
and so I confine myself to begging you, gentlemen, to join me in drinking to the 
health of Mr. Bacon, and of his charming family, voicing at the same time the 
hope that he may carry with him the satisfaction of having achieved complete 
success in the realization of the aims of that great Institution, which, apart 
from its high deserts, has afforded us the honor and pleasure of having Mr. 
Bacon with us to-day. 



APPENDIX VI 143 

Response of Mr. Bacon 

[Translation from the Spanish} 

Mr. Rector; Gentlemen: 

Once again I am pleased to express my sincere thanks and my warm appre- 
ciation for the honors and distinction conferred upon me by you, Mr. Rector, 
and by the esteemed members of the Faculty of this University. 

I assure you, gentlemen, I am deeply touched by your charming courtesy 
and kind hospitality, no less than by your spontaneous offers of help in the work 
of intellectual union. The recollection of your kindness will make the impres- 
sion produced by your wonderful country, your historic capital and your charm- 
ing people more delightful and more lasting. 

It has sometimes been thought that those who speak of international friend- 
ship, of the sentiment that controls everything else in this world, are mere idle 
dreamers. But it is no dream to say that the world is evolving through the 
ages from the material to the spiritual, to the moral, to the intellectual life. 
We can not appreciate this in a single day, just as we cannot perceive the move- 
ment of the tide. We see the waves, but the tide ebbs and flows imperceptibly. 
Progress, the continual irresistible progress of civilization, never halts. 

The facilities of communication are not only making trade and industry 
easier but they are drawing the different nationalities into closer social and intel- 
lectual union. Travel, personal intercourse and the knowledge of different coun- 
tries and institutions, tend to remove the causes of suspicion which unfortunately 
exist among nations and peoples that are not brought into intimate touch with 
one another. International conferences contribute greatly to create a better 
understanding among peoples, and the influence of the Pan-American and Latin 
American Conferences has been marked. It is a matter of great satisfaction to 
see congresses, such as the Medical Congress which has just been held in this 
city, attended by distinguished physicians from the whole of America. The 
valuable results to be obtained from these conferences are not confined solely 
to the world of science; they also serve the purpose of drawing the bonds of 
friendship between different countries closer. The medical profession of Latin 
America deserves the warmest praise and congratulation; its members, meeting 
in international congresses, have contributed to the welfare of the world and to 
the development of sentiments of friendship and brotherhood among nations. 
Through you, Mr. Rector, I desire to express my cordial greetings and good 
wishes to the Dean of the Faculty of Medicine and to the members of the 
Medical Congress. 

Once more I thank you for your hospitality. Although my stay in this 
beautiful land of Peru has been a brief one, I shall not, however, forget the 
pleasing impression I experienced the first moment I set foot on your soil. The 
wonderful history of Peru had seized my interest. The cordiality and affable 
disposition of the people have held my affection; and after contemplating the 



144 MR. BACON'S VISIT TO SOUTH AMERICA 

great progress to be seen everywhere, in the intellectual order as well as in the 
material, there has now been added to my interest and my affection my unbounded 
admiration. On leaving this charming City of Kings, I take with me personal 
feelings of goodwill, real friendships for the future, and I wish to say to my 
friends of Peru not "good-bye" but "till we meet again." 

I raise my glass, gentlemen, to the University of San Marcos, its distin- 
guished Rector and to its illustrious Faculty. 

Letter from Dr. Juan Bautista de Lavalle, 

Accepting the Secretaryship or the Conciliation Internationale for Peru, 

Lima, November 8, 191 3 

[Translation from the Spanish'] 

To the; Honorable; Robert Bacon, 
My dear Sir: 

It is a very great pleasure to me to accept the Secretaryship which you 
have seen fit to offer me of the Society for International Conciliation which has 
already been formed in Peru, thus realizing one of the objects of your noble 
mission. This Society will co-operate with the parent institution founded in 
Washington by the eminent President of the University of Columbia, Dr. Nicholas 
Murray Butler, with that created in Paris by Baron d'Estournelles de Constant, 
and with the societies recently established in the other Latin American countries 
you have been visiting. 

No cultured mind can remain indifferent to the appropriate motto, to the 
elaborate programme and to the high mission of the Society for International 
Conciliation whose purposes have been so clearly set forth by Baron d'Estour- 
nelles de Constant, by the great Elihu Root and by yourself in these words : 
"True patriotism consists in serving one's country. It is not enough to be ever 
ready to defend it; it is necessary to save it difficulties and needless dangers, 
and to develop by means of peace its resources, its wealth and its commerce." 
"The object of the Society for International Conciliation is to develop national 
prosperity under the auspices of happy international relations and to organize 
these good relations upon permanent and lasting bases." "We should do the 
work at hand, with the hope that every effort will produce some result, even 
though it be not given to us to see it." 

I beg to thank you also for the splendid gift of the medal of the Institu- 
tion bearing the beautiful design of Eugene Carriere and the suggestive motto 
"Pro patria per orbis concordiam." 

With the assurances, etc. 

(Signed) Juan Bautista de; Lavage;. 



APPENDIX VII 
Monographs Printed and Distributed in Latin America 

[Translation from the Spanish and French] 



The Carnegie Endowment for International Peace 

On December 14, 1910, Mr. Andrew Carnegie placed in the hands of twenty- 
eight Trustees the sum of ten million dollars, the annual income of which 
($500,000) was to be administered "to hasten the abolition of international war," 
which he declared to be the "foulest blot upon our civilization." "The nation is 
criminal," he further said in the letter accompanying the bequest, "which refuses 
to arbitrate and drives its adversary to a tribunal which knows nothing of 
righteous judgment." 

At their first meeting the Trustees organized by electing Elihu Root Presi- 
dent, Joseph H. Choate Vice-President, and James Brown Scott Secretary. 
Subsequently, Honorable Charlemagne Tower was elected Treasurer. 

Mr. Carnegie wisely left the Trustees full liberty to create the organization 
and the agencies to give effect to the fundamental purpose for which the fund 
was created. Thus, in the letter accompanying the gift he said : "Lines of 
future action cannot be wisely laid down. Many may have to be tried, and 
having full confidence in my trustees I leave to them the widest discretion as to 
the measures and policy they shall from time to time adopt, only premising 
that the one end they shall keep unceasingly in view until it is attained is the 
speedy abolition of international war between so-called civilized nations." 

The Trustees decided that the institution should be called the "Carnegie 
Endowment for International Peace," and a special committee was appointed to 
formulate the aims and purposes of the Endowment. This was a difficult task, 
for Mr. Carnegie's views were expressed in general terms. After much thought 
and deliberation, the Trustees adopted the following statement on March 9, 191 1 : 

That the objects of the corporation shall be to advance the cause of 
peace among nations, to hasten the abolition of international war, and to 
encourage and promote a peaceful settlement of international differences, 
and in particular — 

(a) To promote a thorough and scientific investigation and study of 
the causes of war and of the practical methods to prevent and avoid it. 

(b) To aid in the development of international law, and a general 
agreement on the rules thereof, and the acceptance of the same among 
nations. 

(c) To diffuse information, and to educate public opinion regarding 
the causes, nature, and effects of war, and means for its prevention and 
avoidance. 



146 MR. BACON'S VISIT TO SOUTH AMERICA 

(d) To establish a better understanding of international rights and 
duties and a more perfect sense of international justice among the inhab- 
itants of civilized countries. 

(e) To cultivate friendly feelings between the inhabitants of different 
countries, and to increase the knowledge and understanding of each other 
by the several nations. 

(f) To promote a general acceptance of peaceable methods in the 
settlement of international disputes. 

(g) To maintain, promote, and assist such establishments, organiza- 
tions, associations, and agencies as shall be deemed necessary or useful 
in the accomplishment of the purposes of the corporation, or any of them. 

Pending incorporation, the business of the trust is conducted by the Trustees 
as an unincorporated association. The principal office of the Endowment was 
located in the city of Washington, District of Columbia, and provision was made 
for offices elsewhere. An executive committee of seven members, including the 
•President and Secretary, was appointed to direct and supervise the business and 
conduct the affairs of the Endowment, subject to the approval of the Trustees. 
The Secretary was made the chief administrative officer of the Endowment, and, 
subject to the authority of the Board and the Executive Committee, he was 
given immediate charge of the administration of its affairs and of the work under- 
taken by it or with its funds. The By-Laws require that he shall be a member 
of the Board of Trustees, and shall hold office during its pleasure. 

The officers elected at the first meeting on December 14, 1910, were formally 
re-elected on March 9, 191 1, at which meeting the aims and purposes of the 
Endowment were formulated, and a series of By-Laws were adopted. 

The statement of aims and purposes above quoted shows that the Endow- 
ment is largely a scientific institution and that it will carefully investigate the 
origin and causes of war, as well as its economic effects on neutrals and belliger- 
ents, in order to be in a position to recommend measures to remove as far as 
possible the causes of war. Wise action can be taken only in the fulness of 
knowledge and only after a thorough study of the problems, a careful weighing 
of the difficulties to be overcome, the methods to be employed, — which must nec- 
essarily change with changed conditions, — and above all, by the exercise of a 
sound and enlightened judgment as to what is reasonably possible, given the 
experience of history and a firm grasp of conditions actually existing in the 
countries which make up the society of nations. That the Endowment would be 
largely an institution of scientific research, was made evident by President Root's 
remarks at the first meeting of the Trustees on December 14, 1910: 

I think the field of general observation upon the subject of war and 
peace, general exposition of the wrongfulness of war, and the desirableness 
of peace, is already pretty well covered. I think this Endowment will be 
of little use unless it does something further than that. We must do what 
the scientific men do, we must strive to reach some deeper insight into the 



APPENDIX VII 147 

cause of the diseases, of which war is a symptom, than can be obtained by 
casual and occasional consideration. That deeper insight can be attained 
only by long and faithful and continuous study and investigation. 

The aims and purposes of the Endowment as formulated by the Trustees 
fall naturally into three groups : one dealing with the creation of a public opinion 
in favor of the peaceful settlement of international disputes ; another with the 
investigation and study of the causes of war; and the third with the principles 
of law and justice which, if accepted and applied by nations in their mutual 
intercourse, will enable them to settle many, if not all, of the controversies 
which have either provoked war or embittered international relations in the past. 
The Executive Committee therefore established three divisions : the first, to be 
called the Division of Intercourse and Education, whose chief purposes are 
(i) to diffuse information, and to educate public opinion regarding the causes, 
nature and effects of war, and means for its prevention and avoidance; (2) to 
cultivate friendly feelings between the inhabitants of different countries, and to 
increase the knowledge and understanding of each other by the several nations ; 
(3) to maintain, promote, and assist such establishments, organizations, associa- 
tions, and agencies as shall be deemed necessary or useful in the accomplishment 
of the purposes of the association, or any of them; the second, to be called the 
Division of Economics and History, to promote a thorough and scientific investi- 
gation and study of the causes of war and of the practical methods to prevent 
and avoid it; the third, to be called the Division of International Law, in 
order (1) to aid in the development of international law, and a general agree- 
ment on the rules thereof, and the acceptance of the same among nations; (2) 
to establish a better understanding of international rights and duties and a more 
perfect sense of international justice among the inhabitants of civilized coun- 
tries; (3) to promote a general acceptance of peaceable methods in the settlement 
of international disputes. 

Dr. Nicholas Murray Butler, president of Columbia University, was 
appointed Acting Director of the Division of Intercourse and Education; Dr. 
John Bates Clark, professor of economics in Columbia University, was appointed 
Director of the Division of Economics and History; and the Secretary of the 
Endowment, Dr. James Brown Scott, was appointed Director of the Division 
of International Law. 

Having thus determined the objects of the Endowment and created the 
organization to carry them into effect, the Executive Committee turned its atten- 
tion to the methods to be pursued by the Endowment and by each of the Divi- 
sions to advance the cause for which the Endowment was created. It was felt 
that the methods were of the utmost importance, for it is a commonplace that 
mistaken methods not only jeopardize but discredit an ideal. Success depends 
in this, as in other important undertakings, upon the proper adjustment of the 
means to the end. After a painstaking survey of the field of past effort and 
existing agencies throughout the world in the interest of international peace, 



148 MR. BACON'S VISIT TO SOUTH AMERICA 

the Executive Committee formulated the following conclusions, which were 
approved by the Trustees at the annual meeting of December 14, 191 1 : 

(1) That it will not be wise for the Endowment to enter into com- 
petition with existing agencies or to seek to supplant them by its own 
direct action or by the creation of new organizations to cover the same 
field, but rather 

(a) to give greater strength and activity to the existing organizations 
and agencies which are found to be capable of doing good work; 

(b) to produce better organization by bringing about union in system- 
atic relations of scattered organizations and eliminating duplication of effort 
and conflict of interest; and, 

(c) to cause the creation of new organizations only in those parts of 
the field which are not now effectively covered. 

The successful conduct of work of this kind requires the voluntary 
co-operation of great numbers of people who are moved by their interest 
in the cause of peace. Such co-operation cannot be bought with money, and 
it cannot be controlled by money. It can be greatly aided and made more 
effective by the judicious use of money. It would be impossible to duplicate 
the personnel now engaged in peace work in many directions. The con- 
tinued activity of the workers depends upon the continuance of their interest, 
and that is largely enlisted in the organizations which they have built up, 
often with much labor and sacrifice. It would be an enormous waste of 
power to attempt to substitute new and different organizations. 

(2) That a considerable part of the work of the Endowment must be 
prosecuted in countries other than the United States. There are many 
countries in which the problem presented by the proposal to substitute 
peace for war as the normal condition of mankind is much more complicated 
and difficult than it is with us at home, and there are many countries in 
which the ideas that we have come to regard as fundamental and indis- 
putable have made but little progress. All true advance towards a stable 
condition of peace in the world must be a general advance. The chief bar- 
rier to warlike aggression is the general adverse opinion of mankind and 
the reluctance of nations to incur the condemnation of the civilized world 
by conduct which, in that opinion, is discreditable. 

To render our work most effective it must accordingly be carried on in 
many different countries. 

(3) That in carrying on our work in other countries, and especially 
in those countries of Europe with which questions of peace and war are 
much more pressing and difficult than with us, it is of vital importance 
that we should not present ourselves as American missionaries undertaking 
to teach the people of other countries how they should conduct their affairs, 
but that we should rather aid the citizens of those other countries who are 
interested in the work which tends to promote peace to carry on that work 
among their own countrymen, and that to all such work the first conclusion 
above stated applies with special force. 

(4) That one direction in which work for general peace especially 
needs strengthening is along the line where the sentiment for peace comes 
into immediate contact with the difficulties and exigencies of practical inter- 



APPENDIX VII 149 

national affairs. The reconciliation of the two requires knowledge of the 
practical side, not so much of specific international difficulties as of the 
underlying forces which move nations, the development of their methods 
and motives of action and the historical development of their relations. 
To make progress in this it is necessary to enlist the services of men com- 
petent to carry on thorough, scientific inquiry and to produce definite, cer- 
tain, and authoritative conclusions which may be made the competent basis 
of education and argument, appealing to practical men conducting affairs. 

It may be profitable to sketch the progress made by each of the Divisions to 
give effect to the fundamental purposes for which the Endowment was created. 

i. Division op Intercourse and Education 

Dr. Butler established his headquarters at New York, so that he could be in 
close touch with the work of his Division and personally direct its activities. 

As a large part of the work of the Division would necessarily affect foreign 
countries and as it was essential to its success that the work in foreign countries 
should be done by local agencies, not by branches of the Endowment, Dr. Butler 
created an advisory council of representative European statesmen and publicists 
and a body of correspondents, so that he might be accurately informed of local 
conditions, and to insure that no project be undertaken in any European country 
of a kind calculated to run counter to national institutions, traditions and ideals. 
An executive committee was formed of leading members of this council, 
and a Bureau established at Paris to carry into "effect the projects proposed by 
the council and its executive committee and approved by the Endowment. Dr. 
Butler has been fortunate enough to secure the services of Baron d'Estournelles 
de Constant as president of the advisory council and of the executive committee, 
and of Mr. Prudhommeaux, the accomplished editor of La Paix par le Droit, 
as secretary general of the European Bureau at Paris. 

To diffuse information and to educate public opinion regarding the causes, 
nature and effects of war, the Endowment, upon Dr. Butler's recommendation, 
has taken measures to enlarge the contents of a select list of European period- 
icals devoted to the peace movement, in order that they may reach a larger 
circle of readers and create a public opinion in behalf of the peace movement. 

To cultivate friendly feelings between the inhabitants of different countries 
and to increase their knowledge and understanding of one another, the Endow- 
ment has approved the three following proposals of Dr. Butler: (i) an educa- 
tional exchange with Latin America; (2) an educational exchange with Japan; 
(3) international visits of representative men. It is unnecessary to dwell upon 
the wisdom and timeliness of these projects, for it is common knowledge that 
many of the misunderstandings existing between nations are the result of 
ignorance of local conditions, traditions and ideals. Personal intercourse reveals 
that at bottom all men are strangely alike, and personal intercourse, discussion 
and exchange of views lay the foundation for friendship and good understanding. 



150 MR. BACON'S VISIT TO SOUTH AMERICA 

The educational exchange with Latin America has not yet been carried into 
effect, although progress has been made toward it. 

A distinguished Japanese educator, Dr. Nitobe, spent several months in the 
United States as the representative of Japan, and the distinguished American 
author, Dr. Hamilton Wright Mabie, is at present in Japan. 

In 1912 three distinguished foreigners were welcomed to the United States 
by the Endowment, namely, Baron d'Estournelles de Constant, Count Apponyi, 
and Mr. Christian L. Lange, and the Baroness von Suttner has but recently left 
our shores. The distinguished American educator, Dr. Charles W. Eliot, Presi- 
dent Emeritus of Harvard University, last year visited many countries, especially 
China and Japan, as the representative of the Endowment. 

Passing now to the agencies "deemed necessary or useful in the accom- 
plishment of the purposes" of the Endowment, the following societies have, upon 
recommendation of Dr. Butler, received financial assistance to enable them to 
carry on the work they have undertaken and to enlarge their sphere of influence : 
(1) U Office Central des Associations Internationales, organized by the distin- 
guished Belgian publicist, Senator La Fontaine, and located at Brussels; (2) the 
Bureau International Permanent de la Paix, at Berne, as the recognized head- 
quarters of the various peace societies; (3) the American Peace Society, reor- 
ganized in such a way as to be the efficient representative of the peace societies 
in America. 

It was felt that the Office Central is so international in its nature and scope 
that it should receive direct assistance from the Endowment; that the Bureau 
International Permanent de la Paix as the organ of the peace societies should be 
strengthened in order to perform its work more efficiently, and that, with the same 
general end, the American Peace Society, reorganized and strengthened, should 
not only act as the medium of communication between the Endowment and the 
various societies in the United States, but serve as the agent of the Endowment 
in assisting the local societies. 

The Executive Committee, as the result of the experience and recommen- 
dations of the Acting Director of this Division, has laid down the general prin- 
ciple that assistance shall be granted the national agencies in the Eastern Hemi- 
sphere only upon the recommendation of the Advisory Council, concurred in by 
the representatives of each particular country in the Advisory Council. It is 
believed that this principle is admirably calculated to aid the citizens of foreign 
countries in carrying on the work in their countries, and that it tends to bring 
peace workers into contact and cooperation with each other and with the prac- 
tical men of affairs who mould or control international policies. 

Experience has shown that many people genuinely interested in bringing 
about good understanding with foreign countries, nevertheless hesitate for a 
variety of reasons to ally themselves with peace societies. Associations for 
International Conciliation appeal to these classes. Therefore Dr. Butler's policy 
has been to strengthen these associations where they exist and to create them 



APPENDIX VII 151 

where they do not. The parent association was formed by Baron d'Estournelles 
de Constant in 1906. An American branch, of which Dr. Butler is president, 
was organized in the same year ; German and English associations were organized 
in 19 12, and arrangements are in progress to create branches in South America, 
Canada, and other quarters of the globe. These associations, while local in 
origin, have nevertheless an international mission and tend to create, by their 
meetings and the excellent pamphlets they regularly issue, a friendly feeling 
toward the peoples of foreign countries. 

It is expected that the Division of Intercourse and Education will popularize 
the scientific results of the other Divisions, and will from time to time circulate 
books, articles and addresses, either in the original or in translated form. 

2. Division of Economics and History 

It was felt by the Trustees that nothing would be more productive of results 
than the careful, thoughtful and scientific investigation and study of the economic 
causes and effects of war; because, if we know the elements which have entered 
into and produced war, we are then in a position to consider the means and 
methods calculated to remove the causes and thus prevent recourse to arms. 
It was believed that an impartial and scientific study of the effects of war in all 
its phases, not merely upon the actual belligerents, but upon neutral nations, 
would supply information hitherto lacking, and tend to incline responsible men 
of affairs to the peaceful settlement of international disputes. A conference of 
distinguished economists and publicists was therefore called to meet at Berne, 
Switzerland, in August, 191 1, to consider what subjects could properly and 
profitably be studied, and to draft the program of the Division of Economics 
and History. In extending the invitation to this conference, the President of 
the Endowment stated that "the wish of the Trustees is to utilize the second 
division for the purpose of a thorough, systematic, and scientific inquiry into 
the economic and historic aspects of war, confident that the lessons to be 
derived from such study will be useful to mankind. They feel that such an 
inquiry should be prosecuted upon the broadest international basis, and that the 
organization thereof is a proper subject for the wisdom of the most able and 
eminent economists of all the civilized nations." 

The conference was attended by eighteen leading specialists, including the 
Director of the Division, and formulated a program dealing with (1) the 
economic and historical causes and effects of wars; (2) armaments in time of 
peace, military and naval establishments, the theory, practice and history of 
modern armaments; (3) the unifying influences of international life. As it 
seemed advisable to associate the members of the conference with the apportion- 
ment of the work outlined and with its actual execution, those attending the 
conference were appointed members of a permanent committee of research, to 
act as the agents of the Endowment in selecting competent experts to undertake 



152 MR. BACON'S VISIT TO SOUTH AMERICA 

and carry to completion the investigation of the various topics into which the 
program is divided, to supervise the investigations undertaken and to edit the 
results. A large number of topics have already been assigned to specialists, 
some of the studies have been completed, and in the course of a few years the 
Endowment will have published a series of remarkable monographs dealing with 
all phases of the elaborate program, which will, in the language of its President, 
"be useful to mankind." The headquarters of the Division are temporarily at 
New York, and the Committee of Research, in addition to being the agents of the 
Endowment for the purposes specified, act collectively and individually as 
advisers to the Director of the Division in prosecuting the important projects it 
has undertaken. 

Professor Kinley, who is a member of the Committee on Research of the 
Division of Economics and History of the Carnegie Endowment, and who takes 
a specially keen and personal interest in Latin America — due not only to his 
knowledge of its wonderful progress despite adverse and perplexing conditions, 
but due also to his personal observation, for he was Delegate of the United States 
to the Fourth Pan-American Conference — will visit South America in the very 
near future. His purpose will be to make the acquaintance of the leaders of 
thought in the domain of economics and of history ; to explain to them the origin 
and purpose of the Division; to unfold the projects which the Division hopes to 
undertake, and, if possible, to secure the co-operation of our friends in South 
America in their execution, without which cooperation the work of the Division 
would be faulty and incomplete and fail generally in its beneficent purpose. I 
bespeak for him a warm reception and I would ask you to pledge in advance of 
his coming, your generous and invaluable cooperation. 

With respect to this Division, my modest mission is to prepare the way* 
for Professor Kinley. In view of these circumstances, it would be best that I 
explain to you in general, the aims and purposes of the Division of Economics 
and History, in order that you may yourselves determine in what manner and 
to what extent you may cooperate with and aid Professor Kinley, leaving to 
him the privilege of stating in detail the projects which the Division contem- 
plates, and the large and generous part which we hope that Latin American 
publicists, economists and historians will be willing to take. I cannot better 
indicate the nature of the work which the Division is undertaking than by 
quoting from the remarks made by Mr. Root at the first meeting of the Trustees 
of the Endowment. "I think," he said — "the field of general observation upon 
the subject of war and peace, a general exposition of the wrongfulness of war 
and the desirableness of peace, is already pretty well covered. I think this 
Endowment will be of little use unless it does something further than that: 
we must do what the scientific men do, — we must try to reach some deeper 
insight into the cause of the diseases of which war is a symptom than can be 
obtained by casual and occasional consideration. That deeper insight can be 
attained only by long, and painful and continuous study and investigation." 



APPENDIX VII 153 

These words of ripe wisdom, based upon experience, thought and reflec- 
tion, apply with peculiar force to the task set to the Division of Economics and 
History, for to it is assigned the specific duty "to promote thorough and scientific 
investigation and study of the causes of war and of the practical methods to 
prevent and avoid it". That is to say, the study not merely of the alleged 
causes which have been but the pretext to ambitious and unscrupulous rulers 
and statesmen, but the study of the real cause, often hidden from view, to be 
found in the antagonisms of peoples, and in the desire for economic advantages 
which they do not possess and which they covet. But this study, however 
interesting, would be of but moderate value, even though through it the real 
motives were laid bare. The economic causes, and the economic effects, not 
merely upon the nations at war but upon neutral nations and peoples, the effects, 
indirect as well as direct, must be studied and made known, otherwise we 
cannot strike the balance between war and its cost, estimated not merely in 
loss of life, and in the waste of resources, but in the loss of opportunities, and 
the advantages of peaceful, normal and unobstructed development. 

Thus expressed, the problem is not of any one country or of any one 
time, and Mr. Root was certainly well advised when he stated, "that the lessons 
to be derived from such study will be useful," and that the inquiry itself "should 
be prosecuted upon the broadest international basis, and that the organizing 
thereof is a proper subject for the wisdom of the most able and eminent 
economists of all the civilized nations." 

Professor John Bates Clark, a distinguished economist of the United States, 
is in charge of the Division of Economics and History. While Professor Clark 
was in Europe, the Endowment took advantage of his presence there to invite 
a number of economists, publicists, and historians, mostly European, to meet 
at Berne in order to recommend an organization for the Division, and to pre- 
pare an outline of the work which it could most profitably undertake. 

In the next place, the members of the Berne Conference have been organized 
into a permanent committee called the "Committee of Research", which com- 
mittee will act, not merely as the responsible adviser of the Division, but as 
its agents in the execution of the programme of the work to be undertaken 
in all parts of the world, other than Latin America. Professor David Kinley, 
an ardent friend and admirer of Latin America, has been added to the com- 
mittee in order that he might, through personal conference and intercourse 
with the leading publicists, economists and historians of Latin America, determine 
what form of organization would best meet the desires and assure us of the 
co-operation of our Latin American friends without whose sympathy and effective 
participation the work of the Division — so far as it relates to Latin America — 
could not be outlined, much less carried into execution. I may say that the 
organization of a committee of research for Latin America, such as has resulted 
from the Berne Conference, would be very acceptable to the Endowment, and 
to the Division. 



154 MR. BACON'S VISIT TO SOUTH AMERICA 

Let me now state very briefly the program outlined by the Berne Con- 
ference, which the Division, with the constant aid and advice of the Committee 
of Research, is endeavoring to carry out by means of investigations of causes 
and conditions in the different countries, conducted by distinguished scholars 
and investigators of their respective countries. 

At the Conference held in Berne in August, 191 1, the members were divided 
into three principal divisions, the first dealing with the economic and the his- 
torical causes and effects of wars; the second with the question of armaments 
in time of peace, military and naval establishments and the theory, practice and 
history of modern armaments ; the third with unifying influences in inter- 
national life. It would require more time than I have at my disposal merely 
to enumerate different investigations recommended by the reports of the Divi- 
sions, which, taken together, form at present the programme of the Division's 
activity. Lest I deal too much in generalities, I shall mention some of the prin- 
cipal headings of each report. In considering the economic and 'historical causes 
and effects of war, the commission recommended the following researches : — 

1. Historical presentation of the causes of war in modern times, especially 
the influence exercised by the striving for greater political power, by the growth 
of the national idea, by the political aspirations of races, and by economic 
interests. 

2. The conflict of economic interests in the present age. 

3. The anti-militarism movement considered in its religious and political 
manifestations. 

4. The position of organized labor and the Socialists in the various states 
on the question of war and armaments. 

5. The economic effects of the right of capture, and its influence in the 
development of naval power. 

6. War loans provided by neutral countries, — their extent and influence on 
recent warfare. 

7. The effects of war considered in its economic aspect. 

8. The loss of human life in war, and the result of war, with its influence 
on population. 

9. The influence of annexation upon the economic life of the annexing state 
and upon the state whose territory has been annexed. 

10. The progressive exemption of commerce and industrial activities from 
losses and interference from war. 

Among the topics dealing with armaments, the following questions may be 
mentioned : — 

1. Cause of armaments. 

2. Rivalry and competition in armaments. 



APPENDIX VII 155 

3. Modern history of armaments, with special details from 1872. 

4. Military budgets from 1872. 

5. Burden of armaments in recent times. 

6. Effects of preparation for war upon the economic and social life of a 
nation. 

7. Economic effects of withdrawing young men from industrial pursuits. 

8. Loans for armaments. 

9. The industries of war, and a study of the munitions of war. 

I fear that I cannot try even to mention the topics to be investigated, dealing 
with the unifying influences in international life, as these are so many, so varied, 
and yet so closely related that I could not hope to satisfy your curiosity without 
overtaxing your patience. Suffice it to say under this heading, that the effects 
of international production, distribution and exchange, means of communica- 
tion and their result on the life, thought and development of the peoples and 
of the nations, will be studied. 

Many of these topics are being investigated, not a few of the studies are 
ready for publication, and, in the course of the next few months, the selected 
and well-informed public to which only this kind of work can hope to appeal 
will be in a position to judge the Division, not merely by its good intentions, but 
by its skillful and, as we believe, valuable, although partial realization. 

We do not disguise from ourselves that the" present effect of these studies 
and investigations will be slight in proportion to the effort and time lavished 
upon them; the problem is a large one and the path we must tread must be 
blazed, as it were, through a hitherto trackless wilderness; but, in the language 
of Professor Clark, Director of the Division, — "It may be appropriate to say that 
we are dealing now not with a small issue for a part of the world, but with 
a vast issue for the whole world, and whatever affects the outcome of all is of 
enormous importance. It is a greater thing to move the entire earth a micro- 
scopic fraction of an inch than to carry a shipload of soil across the wildest sea. 
It will be strange if, as the outcome of what is now initiated, there should not 
result some perceptible deflection of the movements of human force. Whatever 
change there is will be in the direction of peace". 

What is to be the role of Latin America in these investigations? I cannot 
believe that the Latin-American publicists, economists and historians will show 
themselves less zealous, less sympathetic, less helpful than their colleagues of 
the other world across the water. I would venture to predict that they will throw 
themselves with abandon into the breach, if I may use a military expression in 
discussing the ways of peace, or that, to vary the phrase, as co-workers in the 
field of peaceful endeavor, they will participate in its victories; for, as a noble 
English poet has aptly and truly said : "Peace hath her victories no less renowned 
than War". 



156 mr. bacon's visit to south america 

3. Division of International Law 

The problems which confront this Division are exceedingly important, 
because to it is referred the specific duty to aid in the development of inter- 
national law, to establish a better understanding of international rights and 
duties, and to promote the general acceptance of peaceful methods in the 
settlement of international disputes. It appears to the Director and to the 
Executive Committee that too great care could not be exercised in determining 
the projects to be undertaken and the methods to be employed. If the relations 
of nations are to be conducted in accordance with principles of law, and if 
controversies which may exist or arise among them are to be decided in accord- 
ance with those principles, it is essential that international law as a system be 
developed slowly and cautiously by the cooperation of publicists in all parts of 
the world, in order that proposals may represent enlightened international opin- 
ion, be reasonable in themselves, and appeal to the mature judgment not only 
of theorists, but of the practical men of affairs into whose hands are committed 
the conduct of the international affairs. Therefore, before proceeding to the or- 
ganization of the Division, the Director, with the approval of the Executive Com- 
mittee, entered into correspondence with professors of international law in all 
parts of the world, with members of the Institute of International Law, with 
members of the Permanent Court of Arbitration of The Hague, and with 
selected jurists who, although not falling within any of these categories, never- 
theless possessed peculiar qualifications by study or experience to pass upon 
delicate and difficult questions of international law. 

After careful consideration of the replies received, the Endowment deter- 
mined, upon the recommendation of the Director, to ask the Institute of Inter- 
national Law to act as general adviser to the Division, either as a body or by 
committee. As the result of negotiations, the Institute of International Law at 
its Christiania session in 1912 accepted the title and functions of general adviser 
to the Division, and elected eleven of its members, including its secretary general 
ex officio, as a consultative committee of the Institute for the Division of Inter- 
national Law. It is expected that this committee will render the greatest 
service to the Director by passing upon the various projects which he may lay 
before them and by suggesting projects which should be undertaken and carried 
out by the Division. It is impossible to overestimate the value of this relation- 
ship, because the members of the committee, possessing as they must, the con- 
fidence of the Institute, will neither approve nor suggest projects unless they 
are reasonable in themselves, calculated to further the development of inter- 
national law, and of a nature to be accepted by the nations. Such a relationship 
is a guarantee that the Endowment through its Division of International Law 
will not undertake projects which may be considered Utopian. The approval 
of the consultative committee will of necessity be accepted as evidence that the 
projects are worthy of consideration by publicists and statesmen and possible 



APPENDIX VII 157 

of execution. It is hoped that the relationship may prove no less agreeable 
and valuable to the Institute, for it will permit the execution of projects which 
the Institute may consider highly desirable, but which for lack of material 
resources might not be undertaken. The decision of the Institute to act as 
adviser completed the organization of the Division, just as the establishment of 
the Committee of Research organized the Division of Economics and History. 

The Institute of International Law, founded in the year 1873, has shown 
itself to be the most potent unofficial agency ever created for the development 
of international law; and the Endowment decided that it could not make a 
wiser expenditure of a portion of its income than by granting the Institute a 
subvention, in the belief that a part of the sum could be profitably used, if it 
were the desire of the Institute, in meeting the traveling expenses of its members, 
in enabling its reporters to receive some compensation for services hitherto un- 
remunerated, in printing the reports themselves in a manner which will make 
them more widely useful to teachers, students, the profession, and the reading 
public, and in permitting the execution, under the supervision of the Institute, 
of projects which it might desire to undertake. The subvention, however, is 
without conditions, as the Institute is best qualified to determine the most profit- 
able use to which the subvention could be put. 

The American Institute of International Law, founded in October, 1912, 
will, it is hoped, render useful service in the development and popularization of 
international law in the Western Hemisphere, even though less conspicuous than 
that which the Institute of International Law has rendered to the world at large. 
As the policy of the Endowment is not to create agencies of its own but to 
assist existing instrumentalities, no financial aid of any kind has been asked or 
received by Mr. Alvarez and the Director of the Division, through whose initia- 
tive the American Institute was founded. It is mentioned in this connection 
because it is an agency calculated "to aid in the development of international 
law," and for the further reason that the president of the Endowment has 
accepted the honorary presidency of the American Institute, and the Director 
was one of its founders. 

There are many ways to establish a better understanding of international 
rights and duties and a more perfect sense of international justice among the 
inhabitants of civilized countries. A beginning has been made, modestly and 
cautiously; and only such projects can be undertaken in the first instance as 
unmistakably fall within this requirement of the Division and are calculated 
directly to accomplish the immediate purpose. The Institute of International 
Law seeks to develop the law of nations by discussing important questions and 
giving them the form of treaty or statute. That this is an eminently practical 
method is shown by the fact that the opinions and resolutions of the Institute 
have appealed to men of affairs and many of them are already firmly imbedded 
in the actual law of nations. It did seem possible, however, to consider the 



158 MR. BACON'S VISIT TO SOUTH AMERICA 

rights and duties of nations from a more systematic, theoretical, and at the same 
time broader point of view. 

A proposal was made at the Second Hague Peace Conference to create an 
academy of international law, and it was commended by the President of the 
Conference. No action was then taken, but the idea has commended itself to 
publicists of many nationalities. A committee of Dutch publicists, under the 
presidency of Mr. Asser, suggested that such an academy be created and 
installed in the Peace Palace at The Hague. The Permanent Court of 
Arbitration would apply the law which had been systematically expounded 
in the academy, and the magnificent building would indeed become a temple 
of peace. Mr. Asser's proposal contemplates systematic instruction, during 
the summer months, in international law and cognate subjects by a specially 
constituted and changing faculty, to be chosen from publicists of different 
countries. Formal courses of lectures on important and timely subjects would 
be given by publicists who, in addition to theoretical training, have had large 
experience in the practice of international law. Seminars, under the direction 
of the regular professors, would be created for the detailed and exhaustive study 
of certain phases of international law and international relations. The courses 
would be open to students of all countries who possess the necessary qualifica- 
tions, and who would be able to attend and to profit by the instruction given, 
as it would be during the academic vacation. It is also proposed that the gov- 
ernments should be interested in the academy and invited through diplomatic 
channels to designate appropriate officials of various branches of the govern- 
mental service to attend the academy. The institution would be unique in its 
summer sessions, unique in its small and changing faculty, and unique in its 
student body drawn from foreign countries and from official classes. The lec- 
tures, published as monographs, would enrich the literature of international law ; 
the law itself would be treated from various points of view and by competent 
teachers, of whom but one at a time would be selected from any country. 
The student body would be drawn from various countries and in the course of 
time would exercise influence in the home countries, so that the academy would 
be eminently helpful to establish a better understanding of international rights 
and duties, and to disseminate the principles of justice. The Carnegie Endow- 
ment has approved the academy in principle, and stands ready to grant financial 
assistance when the plans are sufficiently matured. The academy would, if 
organized, be a separate and independent institution, under the control of a 
specially appointed committee or curatorium composed in the first instance of 
past presidents of the Institute of International Law. Thus organized and 
operated, it would advance the work which the Carnegie Endowment is created 
to further, but it would not be a direct agency of the Endowment or under 
its control. 

The existing journals of international law tend to establish a better under- 
standing of international rights and duties, and an increase in their circulation 



APPENDIX VII 159 

will increase their influence, popularize international law, and show by concrete 
example how its principles determine questions of international rights. For 
this reason the Endowment, upon the recommendation of the Director, has 
granted subventions, either of money or subscriptions, as the journals preferred. 
This assistance will enable the journals to appear more regularly, guarantee their 
continued existence, enlarge and strengthen their contents, and enable their con- 
tributors to receive some compensation for the time and labor they have gener- 
ously given, without any reward other than that which comes from good deeds. 

It often happens that excellent contributions are made to international law 
in languages little read or understood beyond the country in which they are 
published, and it is believed that the cause of international justice would be 
advanced by the translation of such works into languages more widely used. 
Therefore the Director has proposed, and the consultative committee of the 
Institute has approved, the translation of works of this character into some one 
or more better known languages, so that the international lawyer who may not 
be a linguist and students and scholars in all parts of the world may have the 
advantage of reading and studying them. At the same time it would be highly 
useful to have original works prepared dealing with certain phases of inter- 
national law which deserve special treatment. This is a more delicate matter 
but it has received consideration. The Endowment does not contemplate going 
into the publishing business, but feels that it may materially aid authors to 
produce treatises or monographs of the kind specified, and thus render no incon- 
siderable service to the cause of international law and international justice. 

Periodicals and treatises of international law appeal to the reader, but the 
hearer should not be overlooked. Therefore the Director has proposed that dis- 
tinguished foreign publicists be invited to the United States to deliver courses of 
lectures on certain phases of international law in universities and colleges of the 
United States. In this way it is believed that the foreign points of view will 
be made very clear and that, if successfully carried out, teachers of international 
law will be brought into personal relations, and by the exchange of views a better 
understanding of international rights and duties created. 

A fundamental purpose of the Division is to promote the general acceptance 
of peaceable methods of settling international disputes, and it is believed that the 
best way to show what can be done in the future is to make clear what has been 
done in the past. Therefore the Division is now engaged in collecting for publi- 
cation all known general and special treaties of arbitration. This is a long and 
difficult task, and it has been thought advisable to begin with the modern period, 
that is to say, with the Jay Treaty of 1794 between Great Britain and the United 
States. This part of the work is nearing completion, after which the earlier 
treaties will be prepared for publication. This collection will enable publicists 
to see to what extent nations have been willing to bind themselves to arbitra- 
tion, and the various forms of existing treaties will be placed at their disposal. 
For like reason, all known instances of arbitration are to be collected and pub- 



160 MR. BACON'S VISIT TO SOUTH AMERICA 

lished in the form of judicial reports, and the series will be continued indefi- 
nitely. The well-known authority on international law and arbitration, Pro- 
fessor John Bassett Moore, of Columbia University, has undertaken this monu- 
mental work and is actively engaged upon it. 

The existence of the Permanent Court of Arbitration at The Hague, the 
adoption of a prize court convention, although the court itself is not yet estab- 
lished, and the approval by the Second Hague Peace Conference of a truly 
permanent court of arbitral justice composed of judges, lead to the conclusion 
that differences between nations will be more frequently submitted to arbitra- 
tion, preferably judicial decision, in the future than has been the case in the 
past. It seems therefore desirable that we know from concrete instances the 
questions involving international law which have been submitted to and decided 
by courts of justice. This becomes especially important, if judicial decision is 
to supplement arbitration in some cases and to supersede it in others; for until 
the nations have confidence in judicial decision and its possibilities, they will 
hesitate to have recourse to it. The Director has therefore proposed that the 
decisions of English and American courts of justice, in so far as they concern 
international law, be collected and edited, as are the law reports of Great Britain 
and the United States. The decisions will not only be valuable in themselves, — 
for the judgments of Stowell, Marshall and Story are classics of interna- 
tional law, — but will show the careful and cautious manner in which interna- 
tional law has been interpreted, applied and developed by courts of justice, and 
will furnish safe precedents for international courts to follow. The decisions 
of continental courts should likewise be collected and published; but it has 
seemed best to make a beginning with English and American decisions. The 
Director has recommended, and the Endowment has approved, the project for 
the collection and publication of present and future decisions of national courts 
turning on points of international law ; but this recommendation is in the nature 
of a proposal, as it is believed that the experience gained in the collection and 
publication of English and American decisions will render the larger project 
easier to realize. 

As in the case of periodicals, books and treatises dealing with certain phases 
of international law, it is the intention of the Endowment to encourage the 
preparation and distribution of various works dealing with the pacific settlement 
of international disputes. By way of example, the Endowment has subscribed 
for a considerable number of copies of the Recueil des Arbitrages Interna- 
tional** of Messrs. de Lapradelle and Politis, and has made arrangements to 
place them in libraries and institutions of foreign countries, so that they may 
be brought to the notice and attention of the public that should be interested in 
publications of this kind. 

From this account of the Carnegie Endowment for International Peace it is 
clear that it is taking its mission seriously; that it regards itself as a scientific 



APPENDIX VII 161 



institution of research rather than a peace society in the technical sense of the 
word; and that by the investigation of the causes and effects of war and the 
publication and wide distribution of these investigations, and by the material 
encouragement which it extends to institutions, agencies and workers in the same 
field, it may safely be counted upon to render conspicuous service in the great 
cause for which it was created. 



Associations for International Conciliation 

A distinguished French publicist said some time ago in the course of a con- 
versation that he was opposed to the establishment of new Societies, that we had 
so many that it was almost impossible to name them, much less to take part in 
their proceedings, that he belonged to so many that he hardly had time to devote 
to any of them. This was perhaps the language of exaggeration, and yet there is 
much truth in it. It would seem a better and wiser course to strengthen existing 
societies than to create new ones for slightly different or allied purposes. This is 
pre-eminently the point of view of the Carnegie Endowment which makes a point 
of aiding existing societies instead of creating new agencies. 

There are many Peace Societies which do much good, and it cannot be doubted 
that the foundation of others in quarters where such Societies do not exist would 
tend to strengthen the sentiment in favor of peaceful settlement, where it exists, 
and create it where it does not exist. But I should like to call your attention to 
societies of a different kind — broader and yet narrower in their scope than the 
Peace Societies; broader in the sense that they aim to take in all persons believ- 
ing in peaceful settlement, narrower in that they do not propose ordinarily 
specific methods of advancing the cause of international peace. They seek to 
promote good understanding in the belief that good understanding is of itself 
the high road to international peace ; although engaged in the work of propaganda, 
their methods are conciliatory, not aggressive, and they are not inaptly called by 
their founder, Societies for International Conciliation. 

But why, you may ask, start a new Society when I have already indicated 
in my opening sentences a certain hesitation on the subject? The reason is that 
a Society for International Conciliation is a Society of a different kind from the 
Peace Society properly so-called, and that the formation of National Societies of 
International Conciliation would not duplicate existing Associations nor enter 
into competition with them. Again the truth is that there are many people who 
believe in cultivating a friendly understanding between nations, and who are 
ardent partisans of the peaceful settlement of international disputes, but who, 
nevertheless, hesitate to ally themselves with Peace Societies properly so-called; 
and it is interesting and instructive to know the reasons why highly intelligent 
persons in favor of peaceful settlement feel unwilling to enroll themselves as 
members of Peace Societies. 

There seems to be an impression in the popular mind, doubtless erroneous, 
that Peace Societies stand for peace at any price; that they are not patriotic, or 
that they are inconsistent with a sound and robust patriotism ; that their projects 
for bringing about international peace, although many and varied, are fanciful 



APPENDIX VII 163 

and impracticable, and divorced alike from reason and experience, so that their 
remedies, which taken together make up pacifism, are regarded as Utopian. 

Now I would not have you think I share these views or that in quoting this 
criticism, I concur in it. It is a fact, however, that very many estimable 
people in my own country and in foreign countries hesitate to connect themselves 
with Peace Societies, because, by so doing, they feel, at least they express them- 
selves as feeling, that they are committed to the various projects of the Peace 
Societies, and that, by allying themselves with them, they subject themselves to 
the criticism to which the pacifists are exposed. The feeling, it seems, is some- 
what general that Peace Societies are hortatory, not constructive, and that they 
make their appeal to human emotion; that their members are generally, though 
not exclusively, recruited from emotional elements ; that such societies strengthen 
the belief, it may be, of those who are already converted, but that they do not 
make an appeal to the strong, hard-headed men of affairs, who, after all, do the 
world's business. 

On the other hand, it appears, that very many of those who, for one reason 
or another, hesitate to ally themselves with Peace Societies, technically so-called, 
seem to be not only willing, but, in many cases, anxious to join societies of a larger 
and broader nature, which aim to promote good understanding between nations, 
international conciliation and peaceful settlement of disputes. 

It has been said that, between the spirit of pacifism and the spirit of peaceful 
settlement, which may be contrasted in French by the two phrases "I'esprit 
pacifiste" and "I'esprit pacifique", there is the difference between Utopia and 
reality, and that the partisans of pacifism, instead of serving the cause of peace, 
are, in reality, an obstacle to its realization and retard its progress. 

Let me relate a few concrete instances which may tend to support the present 
distinction. A distinguished Japanese publicist well and honorably known by his 
activity in the Peace movement, says that "Peace" or "Peace Society" is the one 
word or expression which must not be used in Japan, because the single word, 
or the phrase of which it is a part, conveys a false notion to many of his country- 
men, who, nevertheless, are heartily in favor of peaceful settlement, international 
good-will and conciliation. 

A distinguished English philanthropist, who has given considerable sums of 
money to the Peace movement, and who believes in the movement, and in the 
possibility of its realization, has asked if it is really necessary to mention the 
word "Peace" in connection with the movement, stating that in his experience the 
word conveyed an unfavorable impression. 

Another illustration shows the possibilities of a broader movement in a 
country in which Peace Societies, at least at present, do not thrive. Within the 
past year, a Society for International Conciliation has been started in Frankfort, 
Germany, and has enrolled in its membership many of the most distinguished 
names in the scientific, literary, industrial and academic world, including pro- 
fessors and teachers of international law. These gentlemen are strongly in favor 



164 MR. BACON'S VISIT TO SOUTH AMERICA 

of peaceful settlement, recommend conciliatory attitudes on international ques- 
tions, and labor in their respective spheres to promote good understanding between 
and among nations. Yet they are unwilling to join Peace Societies. 

It is not, however, for us to criticize. It is better for us to recognize the 
fact — and it is a fact — that many estimable people find it possible to work through 
Peace Societies, whereas just as estimable people find it impossible or undesirable 
to work in or through Peace Societies. It seems the part of wisdom to recognize 
these different classes of people and to start organizations which will serve as 
a rallying point for believers in international good-will and conciliation, who 
otherwise might take no part in the movement which is bringing nations closer 
together and which have for their fundamental principle to clear up misunder- 
standings and, by friendliness and good-will, to advance the cause of peace. 

The first Society of International Conciliation was started by the Baron 
d'Estournelles de Constant in Paris, and it is not only the parent but the model 
of the branches which have been organized in other countries. Baron d'Estour- 
nelles, it need hardly be said, is strongly in favor of peace, and yet he is 
a loyal, broadminded, patriotic citizen of France. He recognizes a two-fold form 
of patriotism : the patriotism which serves the country on the battlefield in case of 
need, and the patriotism which keeps nations from going to war when war is not 
forced upon them. "True patriotism", he says, "consists in properly serving one's 
country. It is not enough to be ever ready to defend it ; it is necessary as well to 
steer it out of complications, to spare it needless burdens, and to promote, through 
peace, its energies, resources, and trade. Our two-fold program has in view 
to stimulate home activity under the safeguard of good foreign relations". 

In the constitution of the original Society of International Conciliation, the 
object is thus stated: — "The Association, bearing the name 'Conciliation Inter- 
nationale', aims to develop national prosperity under the auspices of good inter- 
national relations, and to organize these good relations upon a permanent and 
enduring basis". Among the principal agencies, by means of which the Society 
proposes to realize its object are the following: — Education of public opinion; 
development of arbitration ; correction of misleading news ; an international maga- 
zine ; publications ; lectures ; congresses ; conferences ; exhibitions ; cultivation of 
foreign languages ; exchange of international visits between scientific, artistic, 
professional, and workmen's associations and other agencies of a like kind. The 
Association founded by Baron d'Estournelles de Constant for the stated purposes 
has been very successful, and numbers among its members many of the most dis- 
tinguished citizens of France and of foreign countries. A small pamphlet, aiming 
to promote good understanding, and dealing with timely questions as they arise, 
is issued at irregular intervals. 

An American branch of the International Conciliation has been founded in the 
United States by Dr. Nicholas Murray Butler, President of Columbia University. 
The aims and purposes of the branch are practically identical with those of the 
parent Society of Paris. In the matter of the bulletin or pamphlet which appears 



APPENDIX VII 165 

monthly, Dr. Butler has been able to obtain some of the best known and most 
highly appreciated writers, not only in the United States but in foreign countries, 
and these pamphlets, distributed gratuitously to leaders of opinion and persons 
interested in conciliation, are highly appreciated, as instructive as they are useful, 
and have done very much by their timeliness, the excellence of their style, and 
their pleasing effect to foster friendly relations and to remove misunderstandings. 
Dr. Butler has made it his aim to send the publications only to people who are 
interested in the movement or who, if interested, would contribute to its advance- 
ment ; he has conferred with his friends and from them obtained lists of people 
interested, and these in turn have supplied other names, so that to-day he has a 
mailing list of more than 78,000 names of responsible people in the United States 
of America and Canada to each one of whom a monthly pamphlet is sent. 

Recently — indeed, last year — a German Society was formed at Frankfort 
under the charge of the distinguished lawyer, Dr. Dippold, whose book on the de- 
velopment of procedure in international conflicts is a masterpiece, and is likely to 
become a classic. More recently still — indeed, in the present year — an English 
branch has been started under the presidency of Sir Vezey Strong, formerly Lord 
Mayor of London. A Canadian society is in the process of formation, and I 
should be very happy, indeed, if through my personal endeavors, branch societies 
should be formed in the countries which I have the honor of visiting in South 
America. 

It may probably be asked : What is the relation between the original Society 
and the branches ? And, in reply, I beg to quote the language of Dr. Butler, who 
is President of the American Branch, of whose Executive Committee I am happy 
to be a member : "While," he says, "the Paris society is the parent branch, there 
are no legal relations between it and the various other branches. All work together 
in friendly co-operation and sympathy, and each provides the others with materials 
and suggestions for publication and propaganda". And in speaking of what he 
hopes to be the result of my mission, he says : "We should want the branches in 
Latin American countries, if organized, to stand in precisely the same relation to 
the Paris Society that the other branches now do : in other words, we use the 
same motto, the same imprint, and we look to the Paris Society as the parent 
founder." 

From this very brief and inadequate account it is to be seen that while the 
societies co-operate and work in harmony, and regard themselves as affiliated 
with the parent Society in Paris, each branch is in reality a separate and inde- 
pendent society, and conducts its operations in such a way as best to appeal to the 
public which it seeks to interest and to influence. The most important officer of 
the Society is the Secretary, who practically conducts the Society under the con- 
trol of the Executive Committee. 

We cannot, however earnestly we may try, greatly advance the cause of inter- 
national peace at any time, but we cannot hope to accomplish anything by folding 
our hands and dreaming of a better and happier state of affairs. We must do the 



166 MR. BACON'S VISIT TO SOUTH AMERICA 

work we find at hand in the hope that every effort counts, although we may not 
ourselves see the result. International peace will come, for it is the wish of the 
enlightened in all countries ; but it will come slowly, as we have to overcome a 
habit of mind, a method of procedure deeply embedded in our history. We have 
the consolation of knowing that what comes slowly endures, and the conservatism 
which makes it difficult to change will, when we have accomplished our purpose, 
secure and maintain the results of our labors. One cannot work in vain in a good 
cause, and nothing can assuredly be nobler than to remove misunderstandings, to 
establish relations of mutual confidence, and prepare the way for a brighter and 
happier future. 



The Proposed Court of International Justice 

We are so accustomed to look upon international law as a universal system 
of law, accepted by each and every member of the Society of Nations and 
applied by all in their foreign relations, that we would be shocked by the 
statement that, however universal it may be in theory, it is far from universal 
or uniform in its practical application. If a conflict of a purely legal nature 
arises between any two nations, we find an appeal made to the law of nations 
which either does, or is supposed to. apply to and to be decisive of the con- 
troversy. One nation lays down a principle as admitted law; the other denies 
the existence of the principle, or questions its applicability to the dispute, or, 
admitting the principle and its applicability, interprets it as self-interest suggests 
or dictates. Few principles are so clear as not to admit of different interpre- 
tations, and the facts may be and often are presented in such a way as to 
withdraw them from the category of cases to which an admitted principle 
ordinarily applies or should be made to apply. Take, for instance, without 
dwelling upon it or seeking to determine which view is right or wrong, the 
doctrine of the "favored-nations-clause," the existence of which is universally 
admitted, but which is interpreted one way by many nations and another way 
by the United States ; or the doctrine of blockade, which is admitted, but which 
is interpreted and applied in one way by the nations of Europe, and another 
way by Great Britain and the United States. It is admitted that the favored 
nation clause exists, just as that a law of blockade exists; but the content of 
the law or its interpretation differs. The practice of nations varies to-day just 
as it has varied in the past, and uniformity in theory is in reality diversity in 
fact. To be convinced of the extent of the variation that exists both as to 
the content and form of the law, and its interpretations and application, we 
need only to consult authoritative treatises on international law written by 
equally skilled and conscientious authors of different nationalities. When the 
authorities agree, we may look upon the principle as established; when they 
differ, who shall decide? In the Society of Nations all are equals, and there 
is no superior. If an International Court of Justice existed, as courts of last 
resort exist within the nations, the question could be settled by judicial decision ; 
but no such court exists, and special tribunals of The Hague or mixed Com- 
missions only bind the nations which are parties to them, not the nations at 
large, which are unaffected by the decision. Each nation is thus thrown upon 
itself, and judges according to self-interest or the passions of the moment; 
and a failure to accept the contention of one, for both contentions cannot be 
accepted, may lead to a rupture of friendly relations and plunge the nations 



168 MR. BACON'S VISIT TO SOUTH AMERICA 

into a war which seems to be justified at the moment, but which is condemned 
by the bar of history, which is the final judge of nations, be they large or be 
they small. 

The Peace Palace at The Hague, which was opened on August 28 last 
with imposing ceremonies, is the permanent home of the Court at The Hague, 
and is a visible and eloquent evidence of the fact that the legal disputes of 
individuals should be settled by that due process of law which exists in every 
country that makes a pretence to civilization. And yet, however firmly we may 
cling to the illusion that a court exists, and however much we may speak of a 
permanent court at The Hague, we know, or at least should know that no 
permanent court exists, except in name ; that there is only a panel or list of 
judges from which a special or temporary tribunal can be formed for the trial 
of a case which comes into being for the case, and goes out of existence with 
its decision; that the decision only binds the litigating nations which were a 
party to the controversy and its settlement ; that it is not a precedent except as 
between the nations ; that it does not bind a subsequent and special tribunal of the 
same or of different arbiters ; that the decision is often a compromise of a 
conflict which diplomacy has failed to settle, and that as a compromise or as a 
decision between two nations, it cannot develop international law in that careful 
and conscious, impartial and passionless, systematic and scientific method in 
which national jurisprudence is developed. 

To those who have made a careful study of the process by which law 
and order have been developed within national lines, it is evident that law and 
order between nations will be developed by the play and interplay of the same 
forces at work upon a larger scale and in a larger field; for the nations of the 
world are but the people of the world arranged in more or less artificial groups ; 
and that the experience and practice of each must produce, in the course of 
time, approximately like results. International peace is thus seen to be con- 
ditional upon the growth of law between peoples, its interpretation and its 
application by apt agencies between nations as between individuals, with such 
modifications as differences of conditions suggest or require. Let us take a 
single and simple illustration. As there is no superior in a society of equals 
it is difficult to see how an international court can be armed with the power of 
execution, or how nations will allow any nation or any combination of nations 
to execute a judgment when the use of force in the past has been so productive 
of evil and can so easily give rise on the part of the nation or the group to 
claim and exercise a right which may be destructive of the equality and inde- 
pendence of nations, without which international law, as the law of equal and 
independent nations, is impossible, if indeed, it be conceivable. Fortunately, 
international decisions have been observed without exception, as the submission 
to arbitration involves compliance with the decision and the good faith of the 
nation suggests compliance, even if the self-interest of the moment or amour- 



APPENDIX VII 169 

propre suggested non-compliance. We do not need to trouble ourselves with a 
difficulty in theory which does not present itself in practice, or question the 
possibility and efficiency of an international court simply because it lacks a sup- 
posed essential of a national court of justice, which history shows is a growth 
and a matter of convenience, not an essential prerequisite of judicial procedure, 
or its necessary or inevitable consequence. 

It might have been said in 1794 when the Jay treaty was negotiated between 
Great Britain and the United States, that the settlement of international disputes 
by means of Mixed Commissions was impracticable, if not impossible ; but the 
successful decision of important and perplexing questions between the two 
countries, by means of the Mixed Commission organized under Article 7 of that 
Treaty, showed beyond peradventure the possibility and feasibility of such a 
method. It might have been said that the mixed commissions or temporary 
tribunals were only fitted to determine minor or unimportant questions, or that 
important questions would not be submitted to arbitration unless Great Britain 
and the United States had submitted to the Geneva Tribunal the so-called 
Alabama Claims, which at one time aroused the passions of the two countries and 
threatened to provoke war. 

And finally, it might have been maintained with some show of reason that 
questions could not be arbitrated if the law were doubtful or non-existent, unless 
the Treaty of Washington, of 1871, had not shown how comparatively easy it 
was to lay down principles of law, the so-called three rules, for the settlement 
of claims, if only the nations really wanted to settle their disputes by an appeal 
to reason. For it is and always has been true, as Secretary Root said, on laying 
the corner-stone of the Pan American building at Washington — an earlier and 
not less imposing Temple of Peace — "the matters in dispute between the nations 
are nothing : the spirit which deals with them is everything." 

When, therefore, the First Peace Conference met in 1899 in The Hague — 
the birthplace of Grotius, the first systematic expounder, if not the founder, of 
International Law — nations had the experience of a century in the settlement of 
controversies, often of a perplexing, sometimes of an acute nature, and it is not 
unnatural that they should commend arbitration of questions "d'ordre juridique 
et en premier lieu dans les questions d 'interpretation ou d'application des 
Conventions Internationales comme le moyen le plus efficace et en meme temps le 
plus equitable de regler les litiges qui n'ont pas ete resolus par les voies diplo- 
matiques." 

It was also natural and highly beneficial that the Conference should draft a 
code of arbitral procedure based on the practice and experience of the century, 
especially as the Institute of International Law had, as far back as 1874, drafted 
such a code of procedure which many consider as superior to the code of the 
Conference based upon it. 

But the Conference did more than this : it created machinery consisting of 
a panel or list of judges from which a temporary tribunal could be formed for 



170 MR. BACON'S VISIT TO SOUTH AMERICA 

the trial of a case. It did not make a small and select list of persons who would 
form a court, which the parties in litigation agreed in advance to accept. If it 
had done this, it would have created a court, not merely the machinery for the 
creation of a temporary tribunal. 

What it actually did will be seen from the following quotations from the 
"Convention pour le reglement pacifique des conflicts intemationaux." 

"Art. 23. — Chaque Puissance signataire designera, dans les trois mois qui 
suivront la ratification par elle du presente Acte, quatre personnes au plus, d'une 
competence reconnue dans les questions de droit international, jouissant de la 
plus haute consideration morale et disposees a accepter les fonctions d'arbitres. 

"Les personnes ainsi designees seront inscrites, au titre de Membres de la 
Cour, sur une liste qui sera notifiee a toutes les Puissances signataires par les 
soins du Bureau. 

"Toute modification a la liste des Arbitres est portee, par les soins du Bureau, 
a la connaisance des Puissances signataires. 

"Deux ou plusieurs Puissances peuvent s'entendre pour la designation en 
commun d'un ou de plusieurs Membres. 

"La meme personne peut etre designee par des Puissances differentes. Les 
Membres de la Cour sont nommes pour un terme de six ans. Leur mandat peut 
etre renouvele. 

"En cas de deces ou de retraite d'un Membre de la Cour, il est pourvu a 
son remplacement selon le mode fixe pour sa nomination." 

This supplied the nations with a panel or list of possible arbiters. The 
next quotation shows the method by which the temporary tribunal for the trial 
of the case was to be formed : 

"Art. 24. — Lorsque les Puissances signataires veulent s'adresser a la Cour 
permanente pour le reglement d'un differend survenu entre elles, le choix des 
arbitres appeles a former le Tribunal competent pour statuer sur ce differend, 
doit etre fait dans la liste generale des Membres de la Cour. 

"A defaut de constitution du Tribunal arbitral par l'accord immediat des 
Parties, il est procede de la maniere suivante : 

"Chaque Partie nomme deux Arbitres et ceux-ci choisent ensemble un 
Surarbitre. 

"En cas de partage des voix, le choix de Surarbitre est confie a une Puissance 
tierce, designee de commun accord par les Parties. 

"Si l'accord ne s'etablit pas a ce sujet, chaque Partie designe une Puissance 
differente et le choix du Surarbitre est fait de concert par les Puissances ainsi 
designees. 

"Le Tribunal etant ainsi compose, les parties notifient au Bureau leur 
decision de s'adresser a la Cour et les noms des Arbitres. 

"Le Tribunal Arbitral se reunit a la date fixee par les Parties." 



APPENDIX VII 171 

Finally, an administrative council consisting of the diplomatic agents at 
The Hague was formed to organize an international bureau to act as a greffe 
for the Court and to supervise its operations. 

We have here machinery for the creation of a temporary tribunal; we do 
not have a court in the proper sense of the word, much less a permanent court, 
although, with pardonable exaggeration, the Conference called the machinery 
such. In so doing it familiarized the public with the name and the ideal of a 
permanent court but made it difficult to create a truly permanent institution, for 
we are so much the slaves of words that we have almost persuaded ourselves, even 
the wisest among us, that a permanent court exists, so that, when we advocate 
the establishment of a truly permanent tribunal, with a definite and permanent 
corps of judges, we are met either with indifference or with the question: Why 
create another permanent court when one exists already? 

At the Second Hague Conference to which, fortunately, Latin America was 
invited and attended — due to the statesmanship and insistence of Senator Root, 
for how can a Conference be truly international and legislate ad referendum for 
all the nations when all the nations are not represented? — an attempt was made 
to constitute alongside of the so-called permanent court, a truly permanent tri- 
bunal, composed of judges acting under a sense of judicial responsibility, to use 
the happy phraseology of Mr. Root who, as Secretary of State, instructed the 
American Delegation to present and to urge upon the Conference the creation 
of a permanent international court in the strict sense of the word. 

The necessity of such a tribunal appealed to the judgment of many members 
of the Conference, and Monsieur Bourgeois pointed out in a masterly and con- 
vincing manner how the so-called permanent court could properly and advan- 
tageously be used for questions of a political nature, composed, as it would be, of 
arbiters chosen for the special case, in whose wisdom the parties in dispute had 
peculiar confidence, — whereas a truly permanent court in the judicial sense of 
the word could be formed for the trial of cases of a legal nature. The purpose 
was not to supersede the so-called permanent court, but to erect a truly permanent 
tribunal alongside of it, thus endowing the nations with two agencies of peace, 
and leaving them free to use one or the other as they might prefer, or as the 
nature of the case might suggest. 

After much discussion and debate, turning largely on the method of selecting 
the judges, a draft convention was adopted consisting of 35 articles dealing with 
the organization, the competence and procedure of the Court of Arbitral Justice, 
as the new institution was to be called. Owing to the inability to hit upon a gen- 
erally acceptable method of selecting judges, due no doubt to lack of time and 
the difficulty of the subject, the convention was adopted; but the definite establish- 
ment of the court was referred to the nations, which, it was hoped, would be 
able to reach an agreement upon this necessary detail through diplomatic channels, 
as appears from the language of the resolution or voeu. It is thus evident that 



172 MR. BACON'S VISIT TO SOUTH AMERICA 

great progress was made towards the creation of a truly permanent court similar 
in its general nature to national courts of justice. 

The project has been approved by publicists of all countries, and at the 
session of the Institute of International Law held at Christiania in 1912, the 
proposition was unanimously approved by that body, and the establishment of the 
court recommended after prolonged and profound discussion. The subject will 
doubtless appear in the programme of the Third Conference, and it is hoped and 
believed that the court so long and so earnestly desired will take its place in the 
Peace Palace as the Court of the Nations. 

I do not offer suggestions as to the composition of the court, or as to the 
method of selecting the judges. I merely call your attention to the fact that 
the project stands approved by the Conference of the nations, by the most 
accredited publicists, by the Institute of International Law and by public opinion 
irrespective of nationality, and I ask you to give attention to the problem of 
selecting the judges, and to call the attention of Governments to it, for it must 
be solved, and it cannot be solved without the most careful thought and con- 
sideration of the best minds of the world. In the final solution of the problem, 
Latin America has a right to be heard, and it is the duty of our continent, com- 
posed of twenty-one republics, almost a half of the nations invited to and par- 
ticipating in the Conference to express itself clearly and unmistakably not in the 
interest of any one nation, nor of any one continent, but in the interest of the 
world. I like the fine and impressive phrase of the enlightened President of 
Argentine : "L'Amerique Latine" — I would rather phrase it — "L'Amerique toute 
entiere — pour l'humanite." 

Even though fearing to prolong this article beyond its proper bounds, I 
should like to make certain observations to show that, if history is read aright, 
the creation of a Court of International Justice is inevitable. The partisans of 
arbitration in place of judicial proceedings in the strict and technical sense of 
the word, seem to regard arbitration as the culmination of a long and tedious 
development and to believe that no further advance should be attempted, when in 
reality arbitration is only a step, an important step, it is true, in the transition 
from the period when complainants knew only self redress to the period of 
judicial proceedings. The reader should not be surprised at our failure to note 
the historical relation between arbitration and judicial proceedings, since the 
jurisconsults of the Roman Empire themselves regarded arbitration not as the 
source of their judicial institutions but as a modification of those institutions. 
Nevertheless, modern jurists have shown that among the early inhabitants of the 
European continent those who were dissatisfied resorted to self redress, from 
which sprung the custom of submitting controversies to a third party for deci- 
sion, and this method became general, the parties choosing by common accord the 
person who should act as judge or arbiter. Students of Roman Law have shown 
that the same system prevailed in Rome, and that, by means of a long and slow 
development, the settlement of disputes by arbitration gave rise to judicial pro- 



APPENDIX VII 173 

ceedings and culminated in the establishment of a permanent judicature. In this 
way the parties to a controversy agreed to submit it to arbitration; they also 
agreed on the designation of a judge who was not a public official but a private 
individual and whose award was not an act of state but merely the opinion or 
sentence of a judge or arbiter, enforceable by the parties who had agreed in 
advance to abide by it. In process of time a panel or list of judges was drawn 
up, from which panel or list, called the "Album Judicum," the parties should 
choose the judge or arbiter for each case as it arose, until finally in the reign of 
Diocletian, the magistrate was substituted for the private judge or arbiter, whose 
decision became an act of state and was enforced as such. The analogy between 
the development of that system of jurisprudence which either governs or influ- 
ences the larger part of civilized nations and the development which is taking 
place between nations, is almost too obvious for comment. Nations in dispute 
have redressed and unfortunately, even at the present day, do redress their real 
or supposed wrongs by force of arms. A sentiment has been developed which 
condemns unlimited or unrestricted self redress, so that nations frequently 
agree by treaty or convention, which is nothing more or less than a contract, 
to submit controversies, especially if they are of a legal nature, to judges of 
their own choice. In 1899 the First Hague Conference followed, unconsciously 
it would seem, the precedent of Roman Law by creating a panel or list of 
judges — the modern "Album Judicum" — from which the parties in dispute should 
select the judges or arbiters of the individual case; and at the Second Hague 
Conference an attempt was made, as I have already said, to take the last and 
final step in this unconscious development by creating a truly permanent court. 
It is thus seen that arbitration is not an end in itself, but a means to an end, and 
that historically and logically it developed a judiciary and judicial procedure. 

Did time permit I might show that machinery for temporary tribunals or 
commissions between nations has proved unsatisfactory either in the long or the 
short run and that such machinery has been replaced by permanent judicial tri- 
bunals. Thus the three Cantons which formed the nucleus of the Swiss Con- 
federation agreed in 1291 to submit their disputes to the arbitration of self 
appointed arbiters who possessed the confidence of the community. In the next 
century the Cantons agreed to submit their disputes to arbiters of their choice 
and adopted from time to time various methods of selecting the judges to form 
the temporary tribunals. In 1848, the system of arbitration by temporary tri- 
bunals was replaced by a permanent Federal Tribunal. 

A distinguished Swiss publicist, M. Dubs, points out the advantages of this 
permanent tribunal over the system which he aptly calls "Tribunaux de hasard." 

Among other things he says : 

"On institue le juge pour toute une serie de cas, sans egard a une cause 
speciale; ceux qui le nomment sont tout a fait impartiaux; ils peuvent peser 
avec soin ses qualites morales et ses capacites techniques ; on introduit un ordre 



174 MR. BACON'S VISIT TO SOUTH AMERICA 

fixe dans la procedure, une tradition dans le jugement au fond, et la clarte dans 
l'execution." 

Let me also cite the example of the United States. By the Articles of the 
Constitution of 1778, the States of the Union provided for the settlement of 
disputes of all kinds that might arise between them, by the appointment of tem- 
porary commissions. As a matter of fact, certain disputes were submitted to 
tribunals thus organized but the procedure was unsatisfactory. The Supreme 
Court of the United States, created by the Constitution of 1787, was therefore 
invested with the power to examine and to decide disputes between the States, 
and this system has been so satisfactory that we are at a loss to understand the 
objections which are made to the settlement of disputes between nations by 
judicial tribunals composed of judges acting under a sense of judicial 
responsibility. 

Lest it be said that the formation of a permanent Tribunal is only possible 
in a confederation such as Switzerland and in a Federal State such as the United 
States, I hasten to call your attention to the fact that the establishment of an 
International Court of Justice in no wise depends upon a federation of states. 
It only requires a public union for a judicial purpose. Of public unions, there 
are many examples, the most striking of which is perhaps the Postal Union to 
which all nations and self-governing Colonies are parties, with a bureau in case 
of need to pass upon disputes which may arise between or among the parties of 
the Union. It is thus clear that history points to the development of arbitration 
within national lines into a judicial procedure; that the experience of nations 
which have had temporary tribunals has led them to discard this machinery for 
the more satisfactory, more impartial, less expensive and more expeditious 
method of settling disputes of a legal nature which may arise between their 
Cantons or States, by a permanent Tribunal whose decision binds every Canton 
and State. The various public unions for a particular purpose, of which there 
are some fifty or more, show that a union of this kind is compatible with the 
independent existence of nations. 

If history is with us, the future is assured. We can safely follow the experi- 
ence of nations, for in this instance we are not taking "a leap in the dark," but we 
are acting consciously with full knowledge of the difficulties of the old system, 
the advantages of the new, and with the experience of the past and present as 
a guide. 



The Proposed Academy of International Law at The Hague 

At the Second Hague Peace Conference to which every American State was 
invited and in which every American State, with two exceptions, participated, a 
proposal was made by Mr. Sturdsa, then the Prime Minister of Roumania, to 
establish an Academy of International Law at The Hague which would, as its 
distinguished proposer said: "in a methodical way, maintain science on a level 
with the principles enunciated by the Conference, and practice on a level with the 
progress inaugurated". To effect this noble and beneficent purpose, Mr. Sturdsa 
proposed that the members of the Academy be chosen from among the most emi- 
nent scholars, university professors, and jurists of all countries, men whose 
ability is recognized in the various branches of international law, private inter- 
national law, the law of war, comparative commercial law, commercial systems 
and economic relations, colonial systems and the history of international law. 

The Academy was to be international in the further sense that the instruc- 
tion offered was to be given, without discrimination, in German, English, French 
and Italian, for three or four months of each year, preferably during May, June 
and July. The student body was to be made up of diplomats, army officers and 
persons serving in the higher administrative departments of the State, and 
scholars to be selected by each State, party to the creation of the Academy. The 
expenses were to be borne by such nations, and the Academy was to be under 
the control and the supervision of the permanent administrative Council of the 
Hague, composed, as is well known, of the diplomatic representatives of the 
different countries accredited to The Hague. 

This proposal of Mr. Sturdsa was contained in a letter to the President of the 
Conference, who read both the letter and the proposed constitution of the 
Academy appended to the letter. He gave his hearty approval to the project and 
expressed the hope that the suggestions would inspire some generous benefactor 
with the desire to follow the example of Mr. Carnegie and to immortalize his 
name by connecting it with an establishment which will do great service to the 
cause of peace and ensure justice by contributing to the spread of its principles 
and to the instruction of worthy laborers in that field. 

No action was taken by the Conference on Mr. Sturdsa's project, but the 
letter and the proposed constitution of the Academy were embodied in the records 
of the Conference and are published in its official proceedings. The idea, how- 
ever, has not been lost sight of, and a Dutch Committee, under the presidency of 
the late Mr. Asser, was formed in order to interest the Carnegie Endowment and 
if possible to obtain from its funds the money necessary to support the Academy. 
The Endowment has approved the idea in principle and has expressed itself as 
willing to furnish the means necessary for its installation in the Palace of Peace, 



176 MR. BACON'S VISIT TO SOUTH AMERICA 

in which quarters are to be provided for it, as well as for the expenses necessarily 
required for its successful operation, provided it should appear, — 

( i ) That there was a general desire among the nations for its establishment, 
and 

(2) That the nations should evidence their interest in its creation by desig- 
nating one or more of its officials to attend and profit by the course of instruction. 

The reason for this hesitation on the part of the Endowment is obvious, for 
we should strengthen existing institutions rather than create new ones, unless 
their need or their usefulness be clearly demonstrated. 

These views were made known to Mr. Asser, who communicated with the 
leading publicists of Europe, from whose replies it appeared that there was a 
general — indeed, one might almost say, a well-nigh unanimous and universal — 
desire for the creation of the Academy. The Dutch Minister of Foreign Affairs 
sounded the nations through diplomatic channels as to their willingness to partici- 
pate in the Academy in the way suggested by the Endowment, viz. : by the designa- 
tion of students to follow its courses, and, although replies have not been received 
from all countries, as diplomacy moves somewhat slowly and cautiously, it appears 
that the projected Academy will not be without support of the kind desired from 
a goodly number of nations. It should be mentioned in this connection that the 
matter of the Academy has twice been submitted to the International Law Asso- 
ciation and approved by its members and that, at a recent meeting of the Institute 
of International Law held at Oxford in August of the present year, that distin- 
guished body expressed itself unequivocally and overwhelmingly, — indeed, with 
practical unanimity — in favor of the establishment of the proposed Institution. 
It may be said, therefore, that at least one of the two difficulties standing in the 
way of its creation has been overcome, and if our friends in South America 
could be brought to approve the idea, and their Governments to designate one or 
more qualified persons to attend its courses, the Academy would cease to be merely 
a project and would open its door to competent students from all countries. 

I am specially instructed to lay this matter before you, in the hope that it 
will meet with the approval of Latin American publicists, and that the Govern- 
ments of the American Republics may be willing to participate to the desired 
extent of designating competent persons to attend the courses of the Academy. 
We believe that they would gladly designate such persons if the matter were 
properly brought to their attention and if it were made to appear — which is the 
fact — that the establishment of the Academy depends in no small measure upon 
their cooperation. I may further say, in accordance with the instructions I have 
received, that if the executive powers of the Latin American States would express 
their willingness to comply with the request, either made or to be made through 
diplomatic channels by the Dutch Minister of Foreign Affairs, it is believed that 
the last difficulty standing in the way of the Academy would be overcome. 

Let me briefly outline the plan of the proposed Academy. It may be said that 
it is still Mr. Sturdsa's plan with some important modifications and additions. 



APPENDIX VII 177 

The Academy is to be primarily an Academy of International Law and of con- 
nected or related subjects. It is to meet for three months in the year, preferably 
from July to October, that is to say, during the vacations of the Universities and 
schools of political science. Systematic courses of instruction are to be given, as 
Mr. Sturdsa proposed, in Spanish as well as in German, English, French and 
Italian. The Academy, however, is not to be under the control or to depend upon 
the support of the nations, although it is hoped that the nations will, as suggested 
by Mr. Sturdsa, designate appropriate persons to follow its courses of instruction. 
The Academy is, with the express permission of the Committee in charge, to be 
installed in the Palace of Peace which was recently opened, and is to be adminis- 
tered in its material aspects by the Committee of the Palace of Peace. Its 
curriculum is to be determined by a body called the Curatorium, to be composed, 
in the first instance, of past presidents of the Institute of International Law repre- 
senting different countries, so that the international aspect will be as controlling 
as it is apparent. The sums necessary for the support of the Academy are to be 
furnished by the Carnegie Endowment and to be administered by a special Finance 
Committee with its seat at the Hague. It has been thought best to place the 
Academy under private control, and not to request the Governments to furnish 
any part of the money needed, although it is hoped that they will indicate their 
interest in it by designating students to follow the courses. 

Without going into further details of this kind, which although important 
are not of general interest, let me briefly state the special object of the Academy, 
which, in the language of the Dutch Committee, is to "promote the study of 
public and private international law and political science, including besides the 
law of nations, international, civil and penal law and political science in connec- 
tion with international law." 

The means of attaining this object are, — 

(i) Lectures on special subjects by the most competent professors of the 
science in question, who shall belong to different nationalities. 

(2) Systematic instruction to be given in the whole or a special part of one 
of the sciences by the most competent professors, who shall, likewise, belong to 
different nationalities. 

(3) Advanced instruction to be given by lecturers and professors according 
to the seminar method which has produced such remarkable results in Germany 
and wherever this method has been tried, and, finally, the publication of the 
courses given by distinguished lecturers. 

If we analyze the means thus briefly mentioned, we shall see that lectures on 
special and timely subjects are to be delivered by lecturers of great attainments, 
who are not merely theoretically qualified but who have had the advantage of 
practical experience in dealing with the subjects on which they are to speak. 
Thus, as a single instance, I may state that the distinguished French publicist and 
arbiter, Monsieur Louis Renault, who has represented his country with marked 



178 MR. BACON'S VISIT TO SOUTH AMERICA 

distinction in all the recent international conferences, including two at The Hague, 
and who is the favorite arbiter of disputes between members of the family of 
nations, has agreed to deliver, should the Academy be established, a course of 
thirty lectures on arbitration and arbitral procedure. These lectures would be 
delivered in French and when published would be widely distributed. They would 
be placed in public libraries, in University libraries, and would be exposed for 
sale at moderate prices so that all interested in the subject might procure the 
printed volume. It is expected that four or five lecturers from different countries 
would deliver their courses on important and timely subjects of a theoretical and 
practical nature during each session of the Academy. 

You can, of course, be sure that the distinguished publicists of Latin America 
would be called upon to deliver lectures in Spanish on the various problems of 
international relations. Systematic instruction will be given by professors of 
different nationalities and of known competence, and, as it would be either im- 
possible or impracticable to treat the whole of the subject during a single session, 
without danger of superficial treatment, it is proposed to divide the subjects into 
their component parts and to treat each part separately, if separate treatment be 
possible or desirable. 

We can easily see the advantage to students of the different view points of 
the various professors, as the courses would not merely be courses in international 
law but, as one may say, courses in comparative international law, for, unfor- 
tunately, international law is colored by national feeling, just as a stream bears 
traces of the soil over which it flows. And not only would this be an advantage 
for students; it would, it is believed, be an even greater advantage to the pro- 
fessors themselves who, by daily contact and the exchange of thought, would be 
forced to take note of the opinions of their colleagues of different nationalities 
and thus be led to internationalize international law. 

Finally, it is easy to see the great benefit which not merely advanced students 
would derive from studying under the distinguished lecturers and professors, but 
lecturers and professors alike would profit from the interchange of thought which 
would necessarily take place in such intimate and such small courses, because the 
number of advanced students in the seminar would be small in comparison with 
the numbers attending the lectures and the systematic instruction. 

It is not difficult to create the Academy, to invite lecturers and to secure 
the services of eminent teachers for a summer term. It may, however, be diffi- 
cult to find a student body and the Endowment is not willing to have the distin- 
guished specialists lecture to empty benches. Again the Endowment is desirous 
that the student body shall be of such a kind and of such attainments and be 
drawn from many different countries so that the influence of the Academy will 
be felt upon specialists in international law, whether they become teachers, practi- 
tioners or diplomats. It is for this reason, among others, that the co-operation of 
foreign Governments is considered essential, for, if each country represented at 
The Hague Conference would designate but a single student each year, the student 



APPENDIX VII 179 

body, however small, would be of the kind to profit by the instruction and, per- 
haps, to influence beneficially the foreign relations of their respective Govern- 
ments. 

Let us now consider in what respects the Academy would differ from existing 
Academies : 

(i) It would be installed in the Peace Palace at The Hague and students 
could not fail to be impressed by the aims and purposes of the Peace Palace. 

(2) The lecturers would be selected from the world at large, and the courses 
could be delivered in any one of the five languages. The publication of the 
lectures would, it is believed, enrich international law with a series of monographs, 
so that in the course of a few years students in all parts of the world would have 
the advantage of the matured views and conceptions of distinguished practitioners 
and theorists, which would not be the case if the Academy did not exist. 

(3) The small faculty would be unique in the sense that it would be com- 
posed of professors drawn from different countries, lecturing to students repre- 
senting the nations of the world which recognize and apply international law in 
their foreign relations. 

(4) The seminars would be unique in the sense that instead of being national, 
as is now the case, they would be international and directed by experts of different 
nationalities. 

There is so much that could be said for the-Academy, there is so little that 
could be urged against its institution, that its promoters feel it should be estab- 
lished without further delay. It does not compete with any existing institutions 
either in character, in quality, or in the time of its sessions. It offers instruction 
equally unique, and not elsewhere to be had. There appears to remain but a 
single obstacle to its realization. If the Latin American countries would consent 
to designate one or more competent persons from each of the American Republics 
to follow the lectures and the courses of the Academy, the Endowment would 
feel justified in taking the final steps necessary for its organization. I dare not 
overstep the limits of propriety in urging your Governments to participate in the 
labors of the Academy, but I can assue you that, with your co-operation, the 
Academy will become a reality instead of being as it has been for years a 
dream, a hope, the aspiration of the publicists of many and distant countries. 



National Committees for the Third Hague Peace Conference 

The Latin American diplomats and delegates who played such an important 
part in the Second Hague Peace Conference do not need to be advised of the 
necessity of preparing, well in advance of the Third Conference, the various 
plans and projects which it may be the desire or intention of their respective 
Governments to propose. Indeed, it is common knowledge that the labor of 
preparation had not been done, or at least not done in a thoroughly satisfactory 
manner, by all of the Governments represented at the Second Conference. Many 
of the projects were, it is believed, drafted in the Hague, without consultation 
with the home Governments, and delays occurred in order that the Governments 
might receive the projects which their delegates proposed to present, and furnish 
the delegates with the necessary instructions. It is believed that the Conference 
would not have remained so long in session if the necessary preparation had been 
done before the delegates arrived at the Hague, and that the tension observable 
at times, especially in the last weeks of the Conference, would have been avoided. 

The Conference, itself, was convinced that, if there was to be a Third Con- 
ference, its programme should be drawn sufficiently in advance of the probable 
meeting, and communicated to the Powers, so that they might have the projects 
which they felt inclined to present prepared before the opening of the Conference 
at the Hague. The result of this general feeling was the adoption of the follow- 
ing resolution : 

"The Conference recommends to the Powers the calling of a Third 
Peace Conference which should take place within a period of time similar 
to that which has elapsed since the former Conference, at a date to be 
fixed by common accord among the Powers, who are accordingly urged 
to prepare for this Third Conference in ample time to allow of their 
deliberations being carried on with the necessary sanction and despatch. 

"To attain this end, the Conference is of the opinion that it would 
be advisable that, about two years before the probable date of the meeting, 
a Preparatory Committee should be appointed to collect the various pro- 
posals to be submitted to the Conference; to determine the matters sus- 
ceptible of an international agreement; and to prepare a programme 
sufficiently in advance to permit the careful consideration of all these 
matters by the interested nations. This Committee would likewise be called 
upon to propose a method of organization and procedure for the Con- 
ference itself." 

The Conference thus recommended the calling of a Third Conference, and, 
as all the Powers agreed to the resolution, it is evident that a Third Conference 
is to be expected. 



APPENDIX VII 181 

Dr. Andrew D. White records in his interesting Autobiography a conversa- 
tion with Baron de Staal, President of the First Conference, in which he 
stated that a Second Conference was likely to meet in the ensuing year. It did 
not, and eight years elapsed between the First and the Second Conferences. 
Without fixing a precise date, it is agreed that a Third Conference should meet 
approximately eight years after the adjournment of the Second, that is to say, 
in 1915, approximately. The precise date of the meeting is, according to the 
resolution, to be fixed by common accord among the Powers, and, in order that 
the Powers might have ample time for preparation, it was proposed that some 
two years before the probable date of reunion a Preparatory Committee should 
be appointed to determine the matters susceptible of an International agreement 
and to prepare a programme sufficiently in advance to have it properly considered 
by the Powers. 

If, therefore, the recommendation of the Conference is to be carried into 
effect, it is evident that steps should be taken during the present year to form 
this Preparatory Committee. As far as is known, the Governments have not 
decided that the Third Conference shall meet in 191 5 or that it shall meet at any 
specified date, but it is fair to presume that, if the meeting does not take place 
in 191 5, it will not be postponed to a much later date, as public opinion will, no 
doubt, be as insistent as it was before the meeting of the Second Conference. 
But, it is evident that the Preparatory Committee has a very difficult task, and 
that it needs all the light it can receive from the four quarters of the world. 

Now it stands to reason that a very serious responsibility rests upon each of 
the Governments invited to the Second Conference, which will, doubtless, be 
invited to the Third Conference because, not merely the success of the Con- 
ference itself, but the form and character of the programme depend upon the 
cooperation of the Governments. There are twenty-one American Republics ; 
there are twenty which we in our country ordinarily speak of as the Latin 
American Republics, that is to say, Latin America forms almost one-half of the 
nations invited or actually participating in the Conference, and, as each nation 
has a vote, it can be seen that Latin America by the mere force of numbers, not 
to speak of its intellectual greatness, can go far to determine the nature and 
content of the programme. This, therefore, taxes the American representatives 
with a grave responsibility, for right and duty are correlative terms. 

Supposing that the Conference is to take place approximately in 191 5 or 
19 16, and that a Preparatory Committee of the Powers will be appointed some 
two years in advance of the meeting of the Conference, it would seem to be 
clear, without argument, that the Governments invited to the Second Conference 
should take steps to formulate their views and conceptions so that they may be 
ready to have them presented to the Preparatory Committee immediately upon its 
constitution. How can the preparation for the Third Conference best be made? 
Many European Governments have appointed small National Committees to con- 
sider the questions which their respective Governments would like to have included 



182 MR. BACON'S VISIT TO SOUTH AMERICA 

in the programme, as well as to formulate and express views upon the other 
questions contained in the resolution. Mr. Root, in his instructions to me, has 
suggested that every American country appoint a National Committee for the 
consideration of possible contributions to the programme of the next Hague 
Conference, and that arrangement be made for the intercommunication of such 
Committees among all American countries, and I am directed to make this sug- 
gestion in the hope that it may commend itself to the wisdom and discretion of 
the various countries which I have the honor to visit. It is not meant that the 
American countries should unite upon a common programme and that it should 
be presented to the International Committee as the views of the Western Hemi- 
sphere ; but it is felt to-day, as was formerly and as ever will be the case, that 
in a multitude of counsellors there is wisdom. 

I pass to the question of the appointment of a Committee which may be 
called an International Preparatory Committee to distinguish it from the like 
Committees of the various States. Its composition is a matter of very great 
importance upon which the voice of America should be heard. While it is, of 
course, true that the International Committee will make its report to the nations 
at large and that the Governments will in last resort accept or reject the pro- 
gramme, nevertheless the recommendation of this Committee will in all 
probability be adopted, so that the programme of the Third Conference will 
not really be drafted by the Powers in consultation but by the Members of the 
Preparatory Committee. How is this International Committee to be formed? 
Is it to be composed of the large Powers, and of some small Powers? If so, 
who is to choose the Powers? This is a very difficult matter and one which 
gives ground for serious thought and reflection. It is well known that President 
Roosevelt took the initiative in bringing about the meeting of the Second Con- 
ference. It is a fact, however, that the programme was drawn up by Russia 
after consultation with various Powers, which it took care to consult; but it 
would seem more respectful to the participating Powers, as well as in the 
interest of the programme itself, that all should be asked to contribute their 
suggestions as to the formation of the programme — not merely asked to ratify 
a "fait accompli". I cannot escape the feeling that the practice of the American 
Republics could be of great service to the States at large. I refer to the Pan- 
American Union of which every American State is a member, and to its Govern- 
ing Board, composed of the Diplomatic Representatives of each of the Latin 
American Republics under the Presidency of the Secretary of State of the 
United States. It is the custom of the Board to refer important matters which 
are up for discussion to small committees for study and report; the small 
committee has no power of its own ; it merely lays before the Board the results 
of its labors, and, in appropriate cases, with a recommendation. The Administra- 
tive Council of the Permanent Court of The Hague is composed of the diplomatic 
agents of the various countries represented at The Hague under the Presidency 
of the Dutch Minister of Foreign Affairs. Now, it has occurred to not a few 



APPENDIX VII 183 

of us that, as the programme of organization of the Third Conference is a 
matter of interest to all nations, just as the programme of the Pan American 
Conference is primarily of interest to each and every one of the American 
Republics, the Administrative Council, composed, as it is, of the representatives 
of the Powers, might be, by agreement of the Powers, invested with the duties 
and the functions of the International Preparatory Committee : in other words, 
that it be the International Committee and that it be authorized to appoint a 
small committee to be called Executive Committee — a comite d'examen or 
comite d' etudes, which small committee should take up and consider the various 
matters mentioned in the resolution, and report its conclusions or recommenda- 
tions to the Administrative Council, just as a Special Committee of the Board 
reports to the Governing Board. In this way a small working committee could 
be formed without difficulty, because such committees were frequently appointed 
at the Second Hague Conference, without any friction whatever. 

The Members of the Special Committee would undoubtedly confer with 
their Home Governments, so that the projects reported to the Administrative 
Council would have already had the approval of their Governments ; and the 
Members of the Council, not Members of the Special Committee, would un- 
doubtedly know what was taking place in the Special Committee, or, at any 
rate, the reports of the Special Committee might be submitted to their respective 
Governments for their advice. 

It is believed that Members of the Council would not need to wait any 
length of time for the reports or recommendations of the Special Committee, 
because the Diplomatic Corps resides at The Plague, its Members meet con- 
stantly and are on familiar and intimate terms. The Governments represented 
at The Hague would thus be kept in close and intimate touch with the pro- 
ceedings of the Committees. 

There is perhaps one objection to this plan because although forty-four 
States were represented at the Second Conference, only thirty-four are accredited 
at The Hague; but the reply to this objection is that the Powers not represented 
can, if they choose, appoint diplomatic agents, or the Powers not represented 
might have the reports made to them by the Dutch Minister of Foreign Affairs, 
as President of the Administrative Council, from time to time as they are 
received from the Preparatory Committee, and they could transmit to him 
their views. 

I do not consider it advisable to attempt an enumeration of the subjects 
to be included in the program, as that is a matter for the Foreign Office to 
determine. I would state, however, that, just as the Second Conference con- 
sidered as unfinished businesss the projects of the First Conference, which were 
rejected for the time being, the Third Conference will no doubt regard the 
voeux and recommendations of the Second Conference as unfinished business, 
and that, as the Second Conference revised the conventions of its predecessor 
in the light of experience and further reflection, it is to be presumed that the 



184 MR. BACON'S VISIT TO SOUTH AMERICA 

Third Conference will subject the labors of its enlightened predecessor to ex- 
amination, criticism and amendment. I would state as likely to figure in the 
program : — 

(i) A General Treaty of Arbitration in which the Powers will agree either 
to arbitrate generally with the usual reservations, or to arbitrate specified lists 
of subjects to which the reservations would not apply. 

(2) The definitive establishment of the Court of Arbitral Justice decided 
upon by the Second Conference, by a method of composition which will be 
agreeable to the States generally. 

(3) The consideration of the Declaration of London regarding Prize Courts, 
because it is hardly to be expected that the thirty odd Powers not represented 
at London will be willing, by accepting the Declaration, to consider the ten 
Powers which actually framed the document as their representatives for this or 
for any other purpose. 

I beg to call your attention to the fact that the Institute of International 
Law appointed a special Committee to consider the questions to be discussed at 
the next Peace Conference, and agreed upon the following list : — 

I. Elaboration of regulations with reference to the laws and customs of mari- 
time warfare in the relations between belligerents. 

II. Creation of a Court of Arbitral Justice. 

III. General Treaty of Arbitration. 

IV. Elaboration of regulations concerning a permanent organization of the 
Peace Conference. 

V. Extension of the Convention of October 18, 1907, regarding the opening 
of hostilities, so as to cover in general all international agencies of coercion. 

VI. Determination of the maritime belt, and regulation of its sphere. 

VII. Effects of war upon the private rights of individual nationals of the 
belligerent States. 

VIII. Rules governing airships in time of war. 

IX. Rules governing lighthouses in time of war. 

X. Value of arbitral awards with regard to national jurisdictions and au- 
thorities. 

XL Diplomatic and Consular immunities. 

XII. Competence of the Courts with regard to foreign States. 

It is a matter of importance for the American Republics to make a study of 
the subjects to be included in the programme, and to formulate the projects to be 
presented and discussed in the Conference, since it is not enough that the States 
should merely attend the Conference, but that they should also take part in the 



APPENDIX VII 185 

deliberations. America should contribute to the result, and this can only be 
adequately accomplished if the programme has been carefully studied and the 
projects considered and drafted before the Conference meets. 

There is another viewpoint from which the subject should be considered, 
which would go a long way towards justifying the appointment of the National 
Committees, without reference to the influence of such Committees upon the 
labors of the International Preparatory Committee. The question of attitude is 
of fundamental importance in considering the subject of an international con- 
ference, for it is not to be presumed that national interests will play as great a 
role in an international conference as they would at home. A nation taking part 
in an international conference should, therefore, consider not merely in how far 
it can secure acceptance of its national views and of its special interests, but in 
how far it can, in the interest of the common good, yield its national views and 
special interests, or in how far it can consider a compromise where it is impossible 
wholly to yield. Considered solely in this light, it is believed that the national 
committees would render genuine service to their respective countries. 

Distinguished publicists have held that more real progress has been made in 
the development of international law since the meeting of the First Conference 
than in the interval between that date and the Congress of Westphalia. This 
statement may or may not be true, but it is believed that the meeting of that 
Conference and the meeting of the succeeding Conference was, and will be, more 
important than any convention negotiated, declaration adopted, resolutions agreed 
to, or recommendations which may have been made. The importance of the 
First Conference, leaving out its work, lay in the fact that twenty-six nations were 
willing to meet and to discuss questions of general, as distinct from special, 
interest. The importance of the Second Conference, to which, through the in- 
stance of Mr. Root, all the Latin- American nations were invited, lay in the fact 
that practically all the nations of the world went into the Conference at The 
Hague, and for four months their representatives were within four walls, engaged 
in the peaceable discussion of great and beneficent projects, many of which they 
were able to put in acceptable form, and the individual delegates were so im- 
pressed with the result of their meeting that they recommended unanimously a 
Third Conference. In the instructions to the American delegates of the Second 
Hague Conference, Secretary Root said: 

"The immediate results of such a conference must always be limited 
to a small part of the field which the more sanguine have hoped to see 
covered; but each successive conference will make the positions reached 
in the preceding conference its point of departure, and will bring to the 
consideration of further advances towards international agreement opinions 
affected by the acceptance and application of the previous agreements. 
Each conference will inevitably make further progress and, by successive 
steps, results may be accomplished which have formerly appeared im- 
possible. 



186 MR. BACON'S VISIT TO SOUTH AMERICA 

"You should keep always in mind the promotion of this continuous 
process through which the progressive development of international justice 
and peace may be carried on; and you should regard the work of the 
Second Conference, not merely with reference to the definite results to be 
reached in that Conference, but also with reference to the foundations 
which may be laid for further results in future conferences. It may well 
be that among the most valuable services rendered to civilization by this 
Second Conference will be found the progress made in matters upon which 
the delegates reach no definite agreement". 

And in commenting upon the results of the Second Conference, he said : 

"Let me go beyond the limits of the customary formal letter of trans- 
mittal and say that I think the work of the Second Hague Conference, 
which is mainly embodied in these Conventions, presents the greatest 
advance ever made at any single time toward the reasonable and peaceful 
regulation of international conduct, unless it be the advance made at the 
Hague Conference of 1899. 

"The most valuable result of the Conference of 1899 was that it 
made the work of the Conference of 1907 possible. The achievements 
of the Conference justify the belief that the world has entered upon an 
orderly process through which, step by step, in successive Conferences, 
each taking the work of its predecessor at its point of departure, there may 
be continual progress toward making the practise of civilized nations con- 
form to their peaceful professions". 



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